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Document of
The World Bank
FOR OFFICIAL USE ONLY
Report No: 56404-TG
CATALYTIC FUND PROGRAM DOCUMENT
ON A
PROPOSED GRANT FROM
THE EDUCATION FOR ALL – FAST TRACK INITIATIVE CATALYTIC FUND
IN THE AMOUNT OF US$45 MILLION
TO THE
REPUBLIC OF TOGO
FOR A
EDUCATION AND INSTITUTIONAL STRENGTHENING PROJECT (PERI)
September 16, 2010
Human Development Sector
Education Unit
Africa Region
This document has a restricted distribution and may be used by recipients only in the
performance of their official duties. Its contents may not otherwise be disclosed without World
Bank authorization.
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ii
Currency Equivalents
Currency Unit = CFA Franc (CFAF)
US$1.00 = CFAF 509 (as of July, 8, 2010)
Fiscal Year January 1 – December 31
ACRONYMS AND ABBREVIATIONS
AeA NGO Aide et Action
AFD French Development Agency (Agence Française de Développement)
AFDB African Development Bank
AFTEN World Bank Environment and Natural Resources Management
Department
AGETUR Contract Management Agency (Agence d’Exécution des Travaux Urbains)
BAP Budgeted Action Plans
CAP Teacher Professional Exam (Certificat d’Aptitude Professionnelle)
CAS Country Assistance Strategy
CCP Coordinating Committee
CDD Community Driven Development
CF Catalytic Fund
CMA Contract Management Agency
CONFEMEN Conference of Francophone Ministers of Education (Conférence des
Ministres de l’Education ayant le Français en partage)
COGEP School committee (Comité de Gestion des Ecoles Primaires)
CPAR Country Procurement Assessment Review
CSC Construction Strategic Council
CSE High Level Education Steering Committee (Conseil Supérieur de
l’Education)
CSR Country Status Report
CTC Construction Technical Unit
CWIQ Core Welfare Indicator Questionnaire
DA Designated Account
DAF Direction of Finance (Direction des Affaires Financières)
DANIDA Danish cooperation
DPEE Direction of Education Planning and Evaluation (Direction de la
Planification de l’Education et de l’Evaluation)
DRE Regional Directorates (Direction Régionale de l’Education)
ECD Early Childhood Development
EDIL Community School (Ecole D’Initiative Locale)
EFA-FTI Education For All - Fast Track Initiative
EMIS Education Management of Information System
ENI Primary Teacher Training Institute (Ecole Normale d’Instituteurs)
iii
ENIJE Preschool Teacher Training Institute (Ecole Normale d’Instituteurs pour
les Jardins d’Enfants)
EPTT AFD-financed Education project (Education Pour Tous au Togo)
ERGG Economic Recovery and Governance Grant
ESMF Environmental and Social Management Framework
ESP Educator Sector Plan
EU European Union
FM Financial Management
GDP Gross Domestic Product
GFRP Global Food Response Program
GMT Grassroots Management Training
GtZ German Cooperation
HDI Human Development Index
HIPC Heavily Indebted Poor Countries
HIV/AIDS Human Immunodeficiency Virus/ Acquired Immune Deficiency
Syndrome
IBRD International Bank of Reconstruction and Development
ICB International Competitive Bidding
IDA International Development Association
IFAC International Federation of Accountants
IFR Interim Financial Report
IMF International Monetary Fund
ISA International Standards of Auditing
IsDB Islamic Development Bank
ISN Interim Strategy Note
ITC Implementation Technical Committee
LEDG Local Education Donor Group
LCS Least Cost Selection
LICUS Low-Income Countries Under Stress
LYA Last Year Available
M&E Monitoring and Evaluation
MASPFPEPA Ministry of Social Affairs, Women Empowering and Protection of
Children and Elderly (Ministère de l’Action Sociale, de la Promotion de la
Femme, de la Protection de l’Enfant et des Personnes Agées)
MDG Millennium Development Goal
MEPSA Ministry of Primary, Secondary Education and Literacy (Ministère des
Enseignements Primaire, Secondaire et de l’Alphabétisation)
MESR Ministry of Higher Education and Research (Ministère de l’Enseignement
Supérieur et de la Recherche)
METFP Ministry of Technical Education and Vocational Training (Ministère de
l’Enseignement Technique et de la Formation Professionnelle)
MICS Multiple Indicators Cluster Survey
MoU Memorandum of Understanding
MTEF Medium Term Expenditure Framework
NCB National Competitive Bidding
NGO Non-Governmental Organization
iv
OHADA Organization for the Harmonization of Business Law in Africa
(Organisation pour l’Harmonisation en Afrique du Droit des Affaires)
PASEC CONFEMEN Education System Analysis Program (Programme
d’Analyse des Systèmes Educatifs de la CONFEMEN)
PEMFAR Public Expenditure Management and Financial Accountability Review
PERI Education and Institutional Strengthening Project (Projet Education et
Renforcement Institutionnel)
PCR Primary Completion Rate
PCU Projects Coordination Unit
PDC Projet de Développement Communautaire
PDO Project Development Objective
PFM Public Finance Management
PLAN TG NGO PLAN Togo
PNDCC Community Driven Development National Project (Projet National de
Développement Conduit par les Communautés)
PPMR Long-Term Micro-Achievement Program (Programmes Pluriannuels de
Micro-Réalisations)
PRGF Poverty Reduction Growth Facility
PRSP Poverty Reduction Strategy Paper
PURP Poverty Reduction Emergency Project (Programme d’Urgence de
Réduction de la Pauvreté)
QCBS Quality and Cost Based Selection
RFP Standard Request for Proposal
RPF Resettlement Policy Framework
SIL Sector Investment Loan
SSA Sub Saharan Africa
STP Permanent Technical Secretariat (Secrétariat Technique Permanent)
SWAP Sector Wide Approach Prograrn
TFP Technical and Financial Partner
TOR Terms of Reference
UCG Accounting and Procurement Unit (Unité Comptable et de Gestion)
UNAIDS United Nation Programme on HIV/AIDS
UNICEF United Nation Children’s Fund
WAEMU West African Economic and Monetary Union
WFP World Food Program
WHO World Health Organization
Regional Vice President: Obiageli K. Ezekwesili
Country Director: Madani M. Tall
Sector Director:
Sector Manager:
Tawhid Nawaz
Christopher J. Thomas
Task Team Leader:
Donor Coordination Agency:
Mathieu Brossard
Olivier Cador (AFD)
v
TOGO
EFA-FTI CATALYTIC FUND GRANT
TABLE OF CONTENT
Page
A. STRATEGIC CONTEXT AND RATIONALE .................................................................... 1
A.1 Country and sector issues ...................................................................................................... 1
A.2 Rationale for FTI/CF and World Bank involvement ......................................................... 3
A.3 Higher level objectives to which the project contributes .................................................... 4
B. PROJECT DESCRIPTION ................................................................................................... 4
B.1 Financing Instrument ............................................................................................................ 4
B.2 Development objectives and key performance indicators .................................................. 5
B.3 Project components ................................................................................................................ 6
B.4 Justification of Project design ............................................................................................... 7
C. IMPLEMENTATION ............................................................................................................. 8
C.1. Partnership arrangements ................................................................................................... 9
C.2. Institutional and Implementation Arrangements .............................................................. 9
C.3 Monitoring and evaluation of outcomes/results ................................................................ 12
C.4 Sustainability ........................................................................................................................ 14
C.5 Risks ...................................................................................................................................... 15
C.6 Effectiveness and disbursement conditions ....................................................................... 19
D. APPRAISAL SUMMARY .................................................................................................... 20
D.1 Economic and financial analyses ........................................................................................ 20
D.2 Technical ............................................................................................................................... 21
D.3 Fiduciary ............................................................................................................................... 21
D.4 Social ..................................................................................................................................... 22
D.5 Environment and Safeguard Policies ................................................................................. 23
D.6 Policy Exceptions and Readiness ........................................................................................ 23
vi
Annex 1: Country and Sector Background .............................................................................. 24
Annex 2: Major Related Projects Financed by the World Bank and/or other Agencies ..... 26
Annex 3: Results Framework and Monitoring ........................................................................ 27
Annex 4: Detailed Project Description ...................................................................................... 34
Annex 5: Project Costs and proposed financing of the ESP over the CF grant period ....... 55
Annex 6: Institutional Arrangements ....................................................................................... 56
Annex 7: Financial Management and Disbursement Arrangements ..................................... 61
Annex 8: Procurement Arrangements ...................................................................................... 70
Annex 9: Economic and Financial Analysis ............................................................................. 77
Annex 10: Safeguard policy issues ............................................................................................ 81
Annex 11: Project Preparation and Supervision ..................................................................... 84
Annex 12: Documents in the Project File ................................................................................. 86
Annex 13: Statement of Loans and Credits .............................................................................. 88
Annex 14: Country at a Glance ................................................................................................. 89
Annex 15: Map ............................................................................................................................ 91
Additional Annex 16: Summary of the MEPSA School building strategy ............................ 92
List of tables
Table 1: ESP Objectives and Sub-Objectives and Supporting Partners ................................. 3 Table 2: Number of teachers’ recruitment, past and planned ................................................ 14
Table 3: Description and rating of risks and mitigation measures ........................................ 15 Table A2.1: Issues and results of the most recent World Bank-financed Projects in
Education ..................................................................................................................................... 26 Table A2.2: Summary of Donor main Contributions to education sector............................. 26
Table A3.1: EFA-FTI Indicative Framework Indicators and Targets for Togo .................. 33 Table A4.1: Distribution of primary school classroom built by Institutions/Projects: ........ 34 Table A4.2: Classroom Unit cost (per square meter –HO) according to different
approaches ................................................................................................................................... 35 Table A4.3: Number of firms either pre-qualified or with building records, by region ...... 36
Table A4.4: Number of textbooks delivered by UNICEF project and remaining gap ......... 40 Table A4.5: Distribution of teachers by type of training, primary schools, 2007. ................ 45
Table A4.6: Pupil-Teacher Ratio by region, 2007. ................................................................... 45
vii
Table A5.1: Financing of the ESP by level of schooling and source of funding (2010-2013
MTEF Summary), in k US$ ....................................................................................................... 55 Table A5.2: Distribution of spending of the EFA-FTI operation by sub-component and
year, in k US$ .............................................................................................................................. 55 Table A5.3: Distribution of spending of the EFA-FTI operation by type of spending and
year, in k US$ .............................................................................................................................. 55 Table A7.1: Summary of FM risk assessment .......................................................................... 62 Table A8.1: Summary of Project preparation actions plan .................................................... 73
Table A9.1: Macro-economic indicators and budget priority for education, 1995-2007 ..... 77 Table A9.2: Distribution of recurrent expenditure by level of education, in %, 2007 ......... 79 Table A9.3: International comparison of public recurrent unit cost, by level (expressed as
% of per capita GDP), 2007 ....................................................................................................... 79 Table A9.4: Distribution of expenditure by type and level of education, in %, 2007 ........... 80
Table A10.1: Responsibilities regarding expropriation .......................................................... 82 Table A16.1: Distribution of primary school classroom built by Institutions/Projects: ...... 93
Table A16.2: Classroom Unit cost (per square meter –HO) according to different
approaches ................................................................................................................................... 93
List of figures
Figure 1: Organization chart of the Project ............................................................................. 11
Figure 2: Results Framework for the project........................................................................... 13 Figure A4.1: Recurrent spending other than teachers’ salaries, in %, LYA ........................ 42 Figure A4.2: Spending per student and Exam Pass Rate, primary schools, 2007. ............... 43
Figure A4.3: Consistency of teacher deployment index, 2008/09 or LYA ............................. 52
Figure A8.1: External aid as % of GDP, 2004-2006 average .................................................. 78
The World Bank’s core team for this operation was led by Mathieu Brossard (AFTED). The team
members were: Yacinthe Gbayé (AFTED), Cherif Diallo (AFTED), Kokou Amelewonou (AFTED), Itchi
Ayindo (AFTPC), Alain Hinkati (AFTFM), Olav Christensen (HDNED), Africa Olojoba (AFTEN),
Abdoul-Wahab Seyni (AFTCS), Serge Theunynck (AFTED), Jean-Claude Hameidat (AFTED),
Alexandra Tran (AFTED), Youmna Sfeir (AFTED), Rachidi Radji (AFTED), Michael Drabble (LCSHE),
William Experton (AFTED), Peter Materu (AFTED), Andy Tembon (AFTHE), Daria Goldstein
(LEGAF), Anthony Molle (LEGAF), Said Hanafy (LEGAF), Franco Russo (AFTED), Victoria Gyllerup
(AFTRL), Dung-Kim Pham (AFTED), Rose-Claire Pakabomba (AFTED), Danièle Jaekel (AFTHE),
Cornelia Jesse (AFTED), Jee-Peng Tan (AFTED), Giuseppe Zampaglione (AFTSP), Mohamed Diaw
(CFPPM), Norosoa Andrianaivo (AFTED) and Chantal Tiko (AFMTG)
1
A. STRATEGIC CONTEXT AND RATIONALE
A.1 Country and sector issues
1. Located in the Gulf of Guinea between Benin and Ghana, Togo is a country with an
estimated population of 7.1 million (2010 UN projections). Per capita income (US$437 in 2009)
is low compared to Sub-Saharan Africa (US$1,082) and Low Income Countries (US$524)
averages. Togo’s growth performance has been among the weakest in Sub-Saharan Africa, with
per capita income declining by an average of one percent annually since the early 1980s. Togo
has a very poor human development index (HDI), ranking 159 out of 182 countries. Since 1990,
Togo experienced a long period of socio-political crisis that ended with the parliament elections
in October 2007. Encouraged by the success of those elections and the new government’s reform
platform, donors reengaged with Togo after more than 15 years of very limited assistance. Togo
reached the Heavily Indebted Poor Countries (HIPC) Initiative decision point in November 2008
and expects to reach Completion Point by end-2010.
2. Togo’s general education system is divided into four levels: (i) a three-year pre-school
cycle designed for 3-5 year olds, (ii) a six-year primary cycle designed for 6-11 year olds, (iii) a
seven-year secondary education cycle designed for 12-18 years old, consisting of a four-year
junior level and a three-year senior level and (iv) a higher education system (two public
universities and private institutions). There are also (i) technical and vocational education at the
junior and senior secondary levels and (ii) literacy programs.
3. Due to the long-lasting socio-political crisis coupled with economic mismanagement and
the withdrawal of donor support, the education sector has made little progress towards the
Millennium Development Goal (MDG). The major issues facing the education sector are
described below:
4. Low completion: The primary completion rate (PCR) is the same in 2009/10 as it was
ten years ago (63%). Although Togo is still in the top-half of Sub-Saharan countries, reaching
100% completion rate remains a challenge. There is almost universal access to primary first
grade but the education system still faces a high level of drop-outs. Only 61% of grade 1 new
entrants complete the primary cycle (compared to 71% on average in SSA). The problem of
drop-outs is due to both a lack of classrooms (11% of Togolese schools have not enough
facilities for providing education to all the six grades of primary1) and to the fragility of demand
for schooling.
5. Recent school fees abolition: Consistent with the emphasis on reaching the MDG, the
Government abolished the pre-primary and primary school fees in 2008/09. It helped reduce the
burden for households and has started to effect access to school for the poorest families2.
Nevertheless, the public financial compensation (so far FCFA 2 billion annually) for counter-
balancing the loss of resources for schools is far below the needs. Moreover, only a slight
proportion of the financial compensation is managed by the school itself.
1 In the regions of Kara, Savanes and Centrale, the proportions of such schools are even higher (see ESP).
2 The enrolment in Pre-school and in Grade 1 has increased by respectively 54% and 27% between 2007/08 and
2008/09. Access rate to Grade 1 jumped from 107% in 2007 to 129% in 2009.
2
6. Disparities: In 2006, PCR was 61% for girls and was 76% for boys3. Disparities between
rural and urban areas and between levels of family income were even larger. PCR in rural areas
was only 60% (compared to 84% in urban areas) and PCR for the 40% poorest families was only
52% (compared to 88% for the 20% richest).
7. Poor quality: 28% (equal to African average) of pupils leaving school after completing
the primary cycle do not stay sustainably literate at adult age. It is associated with: (i) the
significant shortage of teaching material, in particular textbooks (one mathematics textbook per
2.1 pupils, and one reading textbook per 2.0 pupils), (ii) discontinued teacher training delivery in
2002 due to budget constraints that prevented the hiring of new teachers (36% of teachers are
non-trained parent-teachers) and (iii) the lack of resources for operating budget at the school
level (teachers’ and staff’s payroll costs account for 95% of total recurrent expenditure in
primary education, one of the highest percentages in Africa).
8. Weak management and institutional capacity: Procurement and financial management
capacities in the Ministries of Education are largely improvable, in particular due to the quasi-
absence of externally-financed projects during the last 15 years. As another key issue regarding
need for improvement capacity, Togo is one of the lowest achievers in terms of consistency in
teacher deployment.
9. Government Strategy: In 2008/09, following an exhaustive process of technical work
and consultation with stakeholders and civil society, the Government4 prepared a letter of sector
development policy, a 2010-2020 Education Sector Plan (ESP, Plan Sectoriel de l’Education)
and a 2010-2012 Sector Medium Term Expenditure Framework (MTEF) for the three first years
of ESP implementation. Those documents reflect the views of both national and international
partners and there is a strong consensus around the main sector issues and policies for addressing
them. The ESP and the MTEF are in line with the education strategy of the Government’s
Poverty Reduction Strategy Paper (PRSP, see also part A.3). The letter of development policy
was adopted by the Council of Ministers in June 2009 and the ESP was approved by a
Presidential Decree signed in March 2010. The ESP was endorsed by the Local Education Donor
Group (LEDG) in March 2010. The ESP is an exhaustive, sector-wide plan, with a wide range of
realistic targets and policies on all sub-sectors. It is in line with the FTI objectives. The ESP’s
priority objective is to achieve universal quality primary education by 2020. It proposes a
balanced development of the education and training system as a whole with emphasis on
improving quality and external efficiency of post-basic education for contributing better to
economic growth.
10. The ESP has been prepared in close collaboration with the LEDG. The ESP is articulated
in four main objectives and includes all the interventions planned by donors (see table 1 below).
3 Education Sector Plan (indicators computed thanks to the CWIQ 2006 household survey)
4 In particular, the four Ministries in charge of the education sector.
3
Table 1: ESP Objectives and Sub-Objectives and Supporting Partners
ESP Objectives and Sub-objectives Supporting partners
Objective 1: Balancing the educational pyramid while reducing disparities in access
Sub-obj. 1: Enhancing early childhood care and development PLAN TG/EFA-FTI
Sub-obj. 2: Achieving universal access and completion of primary education AFD/WFP/DANIDA/IsDB/PLAN
TG/PDC-IDA/UNICEF/EFA-FTI
Sub-obj. 3: Halving the adult (15-45 years old) illiteracy rate PLAN TG/DANIDA/EFA-FTI
Sub-obj. 4: Increasing access and retention in lower secondary education to the extent of
available resources, and linking the development of upper secondary education to a better
quality and more job market-oriented higher education system
Sub-obj. 5: Increasing access to technical secondary education GtZ, AFD
Sub-obj. 6: Increasing access to vocational training GtZ, AFD
Sub-obj. 7: Increasing equity in access to quality higher education
Objective 2: Improving efficiency and quality of education service
Sub-obj. 1: Reduce significantly drop-out rate in primary education WFP/IsBD/PLAN TG/PDC-
IDA/EFA-FTI
Sub-obj. 2: Reducing significantly drop-out rate in secondary education
Sub-obj. 3: Reducing significantly drop-out rate in higher education
Sub-obj. 4: Developing assessment and results-based management AFD/IsDB/PLAN
TG/UNICEF/EFA-FTI
Sub-obj. 5: Improving the quality of pedagogical support IsDB/UNICEF/EFA-FTI
Sub-obj. 6: Reviewing curricula UNICEF
Sub-obj. 7: Developing and promoting academic research
Sub-obj. 8: Increasing availability of textbooks and learning materials for students and
teachers IsDB/UNICEF/EFA-FTI
Sub-obj. 9: Promoting school health in order to improve learning capacity and social
integration WFP
Sub-obj. 10: Promoting access to ICT
Objective 3: Developing effective partnerships with civil society
Sub-obj. 1: Involving occupational institutions in the preparation of the curricula of technical,
vocational and technological education and training GtZ, AFD
Sub-obj. 2: Designing and promoting public-private partnership
Objective 4: Improving management and governance
Sub-obj. 1: Decentralizing resources’ management AFD/DANIDA/AeA/ /PLAN
TG/UNICEF/EFA-FTI
Sub-obj. 2: Promoting good governance in the education system AFD/DANIDA/AeA/ /PLAN
TG/UNICEF/ EFA-FTI
A.2 Rationale for FTI/CF and World Bank involvement
11. As appraised by the LEDG using the EFA-FTI Appraisal Guidelines, the ESP is sound
technically and realistic in terms of implementation and absorption capacity (see Donor’s
Appraisal Report). Nevertheless it lacks funding, as the government’s financial resources remain
severely constrained and donors are few in Togo. Resources focused explicitly on achieving
universal quality primary education from the EFA FTI Catalytic Fund (CF) would make a
significant and essential contribution to the implementation of the ESP first phase (2010-2013),
also supported by other development partners (Agence Française de Développement (AFD),
4
UNICEF, Islamic Development Bank (IsDB), DANIDA) and international NGOs (Plan Togo
and Aide et Action).
12. The World Bank reengaged with Togo in May 2008, when arrears to IDA were cleared
and the Board endorsed an Interim Strategy Note (ISN) for FY08-2010 and approved a US$175
million Economic Recovery and Governance Grant (ERGG). The Country Assistance Strategy
(CAS), to be prepared in 2010, will support PRSP activities and in particular the enhancement of
human capital.
A.3 Higher level objectives to which the project contributes
13. At the international level, the project will contribute to the attainment of the education
MDGs. At the national level, the project (and the ESP as a whole in which the project is
imbedded) will support the PRSP adopted by the Council of Ministers on June 21, 20095. One of
the four pillars of the PRSP is developing human capital. The education strategy in the PRSP is
in line with the ESP, both in terms of objectives and in terms of monitoring indicators.
B. PROJECT DESCRIPTION
B.1 Financing Instrument
14. Based on the success of the Ministries in charge of the Education Sector (MEPSA,
METFP, MESR and MASPFPEPA) in preparing a credible full sector-wide ESP and after
discussions with the LEDG and with the EFA-FTI Secretariat, it has been agreed to process a
request for an EFA-FTI Catalytic Fund Grant6. The Local Education Group (including
Government and donors) agreed to have the World Bank as the supervision entity of the grant.
15. The financing instrument selected is a sector investment grant, which is the most
appropriate for Togo considering the quasi-absence of projects during the last ten years and the
lack of financial management capacity. The possibility of a development policy instrument was
considered, but rejected because (i) the PRSP is in a very early stage of development and (ii) the
national financial management system is weak due to an environment characterized by weak
governance and transparency systems at all levels even if progress have been achieved according
to the ERGG mission in December 2008.
16. The EFA-FTI operation will i) share the Project Coordination Unit (PCU) of the MEPSA
with the AFD-funded EPTT project, and ii) build the MEPSA departments’ capacity -through a
learning by doing process- in order to progressively transfer the responsibilities from the PCU to
the MEPSA Departments. This approach -in line with the aid effectiveness principles and with
the EFA-FTI partnership framework- will pave the way for support through pooled funding and
sector budget support in the future (after this first EFA-FTI operation).
5 The PRSP is in line with the Letter of Development Policy, sent by the Government, on April 28, 2008 to the
World Bank President in order to seek support in the form of the Economic Recovery and Governance Grant. The
Letter of Development states “the main specific objectives of the education sector aim to reduce the contribution of
families to the financing of basic education, to lower school dropout rate and school year repetition rate”. 6 At an early stage of preparation of the operation, a request to the EFA-FTI Transition Fund was envisaged but this
Fund is not yet operational.
5
B.2 Development objectives and key performance indicators
17. The objectives of the Project are to (i) increase coverage of and retention in basic
education, (ii) support improvements in the quality of teaching, and (iii) strengthen institutional
and community capacity in implementation and management of the Project.
18. This operation supports the implementation of the first phase of the 2010-2020
Government’s Education Sector Plan (ESP) that has the longer-term objective to reach universal
quality primary completion by 2020 (see the Table 1 in part A.1 above).
19. This operation will use a sub-set of the ESP indicators to track the attainment of the
objectives for the CF grant. With the exception of the primary completion rate, the key
performance indicators are more output indicators than outcome indicators because the length of
the project (three years) is too short to achieve substantial improvements on most outcome
indicators, in particular on quality (student learning). The key performance indicators are the
following (see also Annex 3 for the full list of indicators and results and monitoring framework):
(i) Increase in Primary Completion Rate7 (both FTI and IDA Core Indicator) from 63% in
2009 to 74% in 2013;
(ii) Direct project beneficiaries (number) – of which female (%) (IDA Core Indicator) as
captured by an increase of the cumulative number of students enrolled in schools
constructed/extended up to 75,000 in 2013;
(iii) Improvement of the Reading Textbooks:Students Ratio8 from 1:2.0 in 2009 to 1:1.4 in
20139;
(iv) Improvement of the Mathematics Textbooks:Students Ratio 10 from 1:2.1 in 2009 to
1:1.5 in 201311
; and
(v) A time-bound implementation plan to support capacity-building of the communities and
of the MEPSA and skills’ transfer from the Project Coordination Unit (PCU)12
is
approved by the MEPSA and at least 75 percent of activities for each year are
successfully implemented, as evaluated by the joint donor supervision mission. The plan
includes the indicator on the number of communities that receive Grassroots
Management Training (GMT).
20. The EFA-FTI Indicative Framework for Togo is included in Annex 3. The Indicative
Framework includes the main indicators for the ESP. They will be jointly monitored and
7 The Primary Completion Rate is defined as the total number of students regardless of age in the last grade of
primary school, minus the number of repeaters in that grade, divided by the number of children of official age for
completing primary level. 8 The Ratio reading Textbooks:Students is defined as the number of reading textbooks that fulfill a need, divided by
the number of students in primary school. As an example, if a school has 100 reading textbooks for Grade 1 but only
80 grade 1 students, only 80 textbooks are counted as fulfilling a need. 9 This improvement matches with an increase of the number of textbooks from 415 000 to 612 000
10 Same as the previous indicator with the exception of mathematics instead of reading
11 This improvement matches with an increase of the number of textbooks from 395 000 to 572 000
12 The capacity building plan was prepared using the “EFA-FTI Guidelines for Capacity Building Assessment”.
6
assessed by the MEPSA and the LEDG and will serve to measure progress towards the
achievement of the education MDGs and EFA goals.
21. The Gender Parity Index in primary education (FTI and IDA Core Indicator)13 will also be
monitored. The ESP goal regarding that indicator is an increase from 0.84 in 2009 to 0.90 in
2013. Only indirect impacts from the Project are expected as a result of building new classrooms
in locations where enrolment ratios, and consequently, gender parity indices are the lowest.
There is also international evidence that building schools with separated latrines (which is the
case of this Operation) has a significant impact on girls’ attendance.
B.3 Project components
22. The Operation will feature three components (see Annex 4 for detailed description and
Annex 5 for detailed cost breakdown).
(i) Component 1: Access and retention (US$ 22.6 million)
1.1 Construction of new classrooms and related facilities in selected urban areas of the
Recipient’s territory.
1.2 Carrying out of specific development projects consisting of construction of new
classrooms and related facilities in selected rural areas, through the provision of Sub-
grants to eligible school-based management committees (COGEP).
Specifically the component will apply the new construction strategy developed by the MEPSA
during the preparation of the ESP14
and build about 815 new classrooms (163 in Year 1, 285 in
Year 2 and 367 in Year 3). The classrooms’ construction management will be delegated by the
Ministry to either a contract management agency (urban) or school-based management
committees (rural). The classrooms will be disability-friendly and they will be complemented
with gender-friendly latrines15
and water access.
(ii) Component 2: Inputs for Quality (US$ 14.7 million)
This component supports critical inputs for improving quality, as referenced in the analytical
work prepared16
:
2.1 Provision of textbooks in core subjects (e.g. mathematics and reading) for public and
community primary schools.
2.2 Carrying out of specific development projects consisting of supply of teaching materials
and support to teaching and learning quality enhancement programs, including, supply of
13
The Primary Gender Parity Index is defined as the ratio of the female-to-male values of the gross enrolment rate
in primary education 14
The construction strategy is detailed in the document Stratégie Nationale du MEPSA en matière de constructions
scolaires du primaire, MEPSA, Togo, August 2009 which is included in the project document file. A summary has
been translated in English and is presented in Additional Annex 16. 15
There is international evidence that separated latrines for girls impact positively on girls’ enrolment. 16
See the 2007 Light Education Country Status Report
7
pedagogical material, textbooks, stationery, school building maintenance, and school
furniture maintenance, through the provision of Sub-grants to eligible COGEP17
.
2.3 Construction of a regional teacher training institute in each of the Kara, Golfe, and
Centrale regions.
(iii) Component 3: Institutional Strengthening (US$ 7.7 million)
3.1 Strengthening of the school building management capacity and supervision of the
Ministry and of the communities.
3.2 Capacity building of the MEPSA by (i) setting up a system for learning assessment, (ii)
improving consistency of teachers’ deployment across schools, (iii) supporting the
preparation of credible implementation plans for pre-school and literacy development;
and (iv) supporting the preparation of a credible implementation plan regarding school
health, nutrition and HIV/AIDS. Those areas have been selected as priority areas after
consulting the donors on their capacity-building activities in order to be complementary
to the other donors’ support. In particular the EPTT project builds capacity in statistics, in
sector policy planning and monitoring and in teacher training (EPTT components 1 and
4)18
. The pre-identified areas for the EFA-FTI project constitute the most important
remaining gaps for ensuring a smooth implementation of the ESP and for improving
system management. A time-bound capacity building implementation plan has been
prepared (using the “EFA-FTI Guidelines for Capacity Building Assessment” and other
references19
) and will be monitored during the annual joint sector reviews.
B.4 Justification of Project design
23. The components, sub-components and activities have been selected in order to be
complementary to the other donors’ support to the ESP.
24. One of the main lessons derived from experience of previous EFA-FTI projects in other
countries has been the need for simple project designs, closely tied to the Government ESP, and
with strong Government ownership in order to speed-up implementation and disbursement.
Learning from these lessons, this project is derived from the Government’s Medium Term
Expenditure Framework 2010-2012, is focused on a limited number of interventions included in
the ESP, and puts emphasis on enhancing implementation and management capacity for future
step up of the current project activities.
25. Strong focus is put on capacity building activities because (i) MEPSA has not
implemented a World Bank project for more than 10 years, (ii) capacity building/strengthening
will support the implementation of the key ESP policy reforms20
and (iii) there is a rationale in
17
See Annex 4 for details 18
The capacity building activities of the EPTT project are supported by three full-time international experts located
in the MEPSA. 19
See E. Orbach, Assessing organizational capacity tool, World Bank 20
As key examples: improving teacher deployment consistency, transferring responsibilities at the
school/community level for an increased accountability and, setting up a learning assessment system
8
building capacities first with minimal investment activities and then progressively moving
towards scaled-up investment activities.
26. School building is a very pressing priority for external support. There is a growing
demand for schooling (enhanced by the recent school fee abolition) but Government has not been
able to build the necessary classrooms, due to budget constraints. Government financing patterns
prioritize payroll cost, leaving a financing gap in the provision of infrastructure.
27. Lessons learned from recent experiences in school buildings in Togo include: (i) the
country has the asset of experience in community-based approaches (73% of the classrooms built
during the last 4 years) although not with the Ministry of Education; (ii) delegation of school
construction management is more efficient than direct management by the Ministry; and (iii)
community-based approaches are by far the more cost-effective, allowing 20% to 25% saving
compared to centrally-based approaches, mainly because it allows local competition of small
contractors (see Additional Annex 16 for the details). These lessons in Togo are consistent with
international knowledge21
. During the project preparation, a census of firms in capacity to build
classrooms (with records in school building or pre-qualifications status from a donor/NGO) was
conducted. The census showed that there are 379 firms either with records in school buildings or
pre-qualified for building, and they are geographically well distributed (see Annex 4).
28. The new school building strategy draws on lessons learned from community-based
experiences in the country. It benefits from a wealth of existing documentation and experience of
the past EU-financed Programme Pluriannuel de Micro-Réalisations (PPMR) and the World
Bank-financed Projet d’Urgence de Réduction de la Pauvreté (PURP) as well as from the
current World Bank-financed Community-Driven Development (CDD) project (Projet de
Développement Communautaire -PDC). The MEPSA also draws on lessons of the similar
experience of the Benin Ministry of Education, which is implementing a similar strategy with the
support of the Benin CDD project. The implementation will place importance on training of
COGEP and on the monitoring and evaluation (M&E) system to timely inform the Ministry of
eventual difficulties for rapid corrections. A census of the different training received by the
communities through the different projects has been prepared. It is estimated a total of 1,441
villages has received at least one type of training during the last 5 years.
C. IMPLEMENTATION
29. The EFA-FTI operation (embedded in the ESP) will be implemented by the MEPSA and
in particular by its PCU, as is currently the case in the implementation of the AFD-funded EPTT
project which supports the ESP as well. The PCU will be re-enforced by this operation to
enhance its capacity to implement two projects. Due to the high volume of activities and for
accountability purpose, it has been agreed with the MEPSA and AFD that each project would
require a specific coordinator that will work closely together. The key elements of the
implementation arrangements are described below. The implementation arrangements are
detailed in the Project Operations Manual.
21
See S.Theunynck, School Construction Strategies for Universal Primary Education in Africa. Should
Communities Be Empowered to Build Their schools?, Africa Human Development Series, World Bank, 2009
9
C.1. Partnership arrangements
30. After more than a decade with limited external assistance, Togo has made significant
progress on political and economic reforms, and has regularized its relations with key
development partners, including the World Bank, the IMF, the AfDB, and the European Union.
The main donor partners intervening specifically in the education sector are AFD (coordinating
agency), UNICEF, DANIDA, IsDB, the World Bank and some international NGOs such as Plan
Togo and Aide et Action.
31. The ESP has been prepared by Government in close collaboration with the LEDG. All
the interventions planned by donors are included in the ESP (see details of the donor financing
for the next three years in Annex 5). The ESP was appraised using the EFA-FTI appraisal
guidelines in December 2009, and was endorsed by the LEDG in March 2010.
32. The objective of increased aid coordination in the education sector is addressed through a
Statement of Intent (Cadre Partenarial) between the Government and the LEDG that was signed
in March 2010. The Statement of Intent describes the mutual roles and responsibilities of
signatory partners, including the monitoring and evaluation of the ESP advancement through a
common set of indicators. The Statement of Intent includes the organization of annual joint
reviews of the ESP (see also section C.3).
33. Although the World Bank has been chosen by the Local Education Group (including the
Government) to be the supervising entity for this EFA-FTI operation, it is important to
underscore that this Operation was prepared by the MEPSA in partnership with the LEDG, led
by AFD and with also a significant assistance from UNICEF. The World Bank and the MEPSA
will report to the LEDG on the progress made on the implementation of the Project and on the
achievement of its objectives.
34. The EFA-FTI project will (i) share the PCU of the MEPSA with the AFD-funded EPTT
project which is already following World Bank procurement and financial management rules,
and (ii) build the MEPSA departments’ capacity -through learning by doing process- in order to
progressively transfer the responsibilities from the PCU to the MEPSA Departments.
C.2. Institutional and Implementation Arrangements
35. Project implementation arrangement. The project implementation unit established in
MEPSA for the AFD-financed EPTT project already follows largely World Bank finance
management and procurement procedures. The unit will be strengthened to become a Projects
Coordination Unit (PCU). Under the supervision of the MEPSA General Secretary, the PCU
will (i) implement all the activities of the two projects (EPTT and EFA-FTI), (ii) liaise with the
ESP coordination structures and the MEPSA departments and (iii) transfer skills to MEPSA
departments during the projects implementation. The PCU will report to the MEPSA General
Secretary.
36. In addition to the EPTT coordinator and the EFA-FTI coordinator, the PCU will include
two sub-units: (i) an Accounting and Procurement Unit (Unité Comptable et de Gestion - UCG)
which will be responsible of the fiduciary and procurement aspects of the projects and (ii) a
Construction Technical Unit (CTC) which will be responsible for the school building
component regarding technical aspects, and capacity-building of communities.
10
37. The UCG will comprise the following core group of experts: two procurement specialists
(one already recruited by the EPTT project), a financial comptroller (already recruited by the
EPTT project) and two accountants (to be recruited with qualifications and experience
satisfactory to the World Bank).
38. The CTC is advised by the Construction Strategic Council (already in place) which
includes MEPSA and the donors and NGOs involved in school building activities in Togo. The
CTC will comprise the following core group of experts: a Construction Program Manager, a
civil works specialist which will be responsible for the technical aspects of the construction
program, a M&E specialist which will coordinate the production and use of the flow of data
needed to monitor the project, a Communities Training Coordinator to coordinate the capacity-
building program for communities and five decentralized Grassroots Management Training
(GMT) experts which will be regionally distributed to support Regional Directorates (DRE) and
coordinate supervision and capacity-building regional sub-programs. The Construction Program
Manager will coordinate with the Procurement Officer as well as with the Financial Comptroller
to ensure all activities are conducted according to procedures acceptable to the World Bank.
39. Given the current lack of capacity of the MEPSA, the PCU will have the responsibility to
strengthen the capacity of the key MEPSA departments (in particular the Direction des affaires
financières –DAF, and the Direction de la Planification de l’Education et de l’Evaluation –
DPEE) through specific training and learning-by-doing. The UCG will gradually transfer its
responsibilities to the DAF and the CTC will gradually transfer its responsibilities to the DPEE.
A time-bound capacity building and skills-transfer plan has been prepared and will be monitored
during project implementation.
40. Implementation at the community level. The project is designed to strengthen
grassroots communities’ responsibilities in order to improve accountability and efficiency in
service delivery22
. In particular, the communities, through school-based management
committees (COGEP) and after being trained, will be in charge of the management of the
classroom buildings and of the school grants sub-component. The COGEP include parents,
village representatives and teachers of the school. In rural areas, school building procurement
will be carried out according to simplified procedures that are already used in the World Bank-
financed Community Development Project. The COGEP will be supervised by the Regional
Directorates (DRE) with the support of the decentralized PCU staff. Each specific COGEP will
receive the required basic training on the Simplified Guidelines for Procurement and
Disbursement for Community-Based Investments in case it has not yet received such training
through a previous project. The procedures are detailed in the Operations Manual and in the
Financial Management Manual.
41. Procurement and financial management have been assessed by the World Bank and the
recommendations made on arrangements will be monitored (see Annexes 7 and 8).
42. The organization chart below indicates the functional connections that exist between the
different units and actors involved.
22
See World Development Report 2004, Making Services Work for Poor People; World Bank, September 2003
11
Figure 1: Organization chart of the Project
ESP High Level Steering Commitee (CSE)
ESP Coordinating Committee (CCP) with a
Permanent Technical Secretariat (STP)
Accounting and
Procurement
Unit (UCG)
DAF
DPEE
Communautés
Support and Capacity Building
Decision and Supervision
Contract Agreement
Two
Procurement
officers
Financial
Analyst +
Two
accountants
Budget and
Accounting
Material and
Equipment
IT
Construction
Technical Unit
(CTC)
Monitoring and
Evaluation
Expert
Civil Works
Expert
Projects Coordination Unit (PCU)
Private Sector
Contractor
Schools
Construction
Use of school grants
Textbooks reception
MEPSA General Secretary
Trainers/Moderators
Prog.. Manager
Grassroot
Management
Training Expert
DPEE
Statistics and
School
Mapping
Equipment and
School
Buildings
Evaluation and
Surveys
Communities
Regional Directorates (DRE)
School Building
Division
Inspectorates
School Committee
Village Community
Association
Inspector
Director PCU Decentralized Staff
Reg. Coordinators
Construction Strategic
Council (CSC, includes
donors)
12
43. The supervision of the project will be facilitated by the recruitment of an Extended Term
Consultant based in Lomé who will support project implementation and supervision under the
management of the World Bank Task Team Leader and in close collaboration with the Country
Manager.
C.3 Monitoring and evaluation of outcomes/results
44. A joint Government/Donors monitoring and evaluation framework has been established
for the ESP with key performance indicators selected. The Ministries in charge of education will
be responsible for collecting data on those indicators, which includes FTI indicative framework
indicators and project-specific indicators.
45. The Results Framework for the EFA-FTI Operation is based on the Logical Diagnostic
Tool recently developed by the World Bank Africa Region23. It consists in using typical results
chains that presents the input/output/outcome/impact causal logic. Objectives are organized into
a hierarchy and are linked to performance indicators (see below and Annex 3).
46. The DPEE will take the lead on monitoring and evaluation activities for the ESP and the
EFA-FTI project, supported by the M&E specialists from both the PCU and the STP. It will
draw on successes of the 2008/09 and 2009/10 school censuses where the Ministry was able to
collect all the key school data in a very short period of time.
47. The project will finance capacity building activities for the DPEE such as the setting up
of a student learning assessment system and other activities (see description of the component 3
in Annex 4), in complement to the activities supported by the EPTT project (capacity building in
statistics, in sector policy planning and monitoring).
48. The Government will organize annual joint reviews to assess progress made in
implementing the ESP and the projects supporting it (this project included). The Government
and donors supporting ESP will review the previous year’s activities and budget execution and
discuss the draft budgeted action plan, procurement plan, and budget program for the coming
year. Key documents will include: (i) the annual performance report (concerning physical and
financial execution) for school year N-1/N; (ii) draft financial and technical audit reports for
year N-1/N; (iii) an analysis of indicators and performance for year N-1/N (commenting on
deviations from targets and their reasons); (iv) the draft action plan and the draft procurement
plan (to be annexed to the action plan) for year N+1, for validation; and (v) the updated Sector
MTEF for the period N+1-N+3.
49. In addition to the joint review, another World Bank supervision mission will be organized
annually, six months after the joint review, in order to monitor specifically the EFA-FTI
Operation.
23
N.O. Mugwagwa, V. Gyllerup, Powerpoint Results in Bank Projects. Africa Region Experience with Results
Framework
13
Figure 2: Results Framework for the project
3.2a. Improved capacity of the
MEPSA for ESP implementation
(Ind.3.I)
Build capacity of MEPSA according to
the time-bound capacity-building and
skills transfer implementation plan
(Ind 3.I)
Increased
coverage and
retention of
primary
education,
improvement
s in quality of
teaching,
strengthened
institutional
and
community
capacity (PDO)
2. Improved
availability of
teaching material and
number of trained
teachers (Component
2)
3. Strengthened
institutions and
communities
(Component 3) (Ind
3.I)
2.1. Improved availability of
textbooks (Ind.2.1.I, Ind.2.1.II)
2.3. The regional teacher training
centers are running (Ind. 2.3.I)
2.2. Increased resources and
responsibilities for school
committees and improved
accountability (Ind.2.2.I)
3.1. Improved efficiency and
management of school building
program (Ind.3.1.I, Ind.3.1.II)
3.2b. Learning assessment system
up and running (Ind 3.2.I)
3.2c. Improved consistency in
teacher deployment (Ind. 3.2.II)
3.2d. ECD and Literacy
implementation plans approved
and implementation started (Ind.
3.2.III, Ind.3.2.IV)
3.2e. School health, nutrition and
HIV/AIDS implementation plan
approved and implementation
started (Ind.3.2.V)
Build and equip regional teacher
training institutes and Regionalize
training and recruitment of teachers
(Ind. 2.3.I)
Disclose in schools the individual
school grant amount and calculation
method
Build classrooms in urban (with
AGETUR executing agency) and rural
(with communities) areas according to
agreed procedures (Ind.1.1.I, 1.1.II)
1.1. Improved availability of
satisfactory built schools in under
equipped areas (Ind.1.1.III)
1. Increased access and
retention in primary
education (Component
1) (Ind.1.I)
Develop new curricula and new
textbooks with Gov. owned copyright
(Ind.2.1.IV)
Provide public/EDIL primary schools
with Mathematics and Reading
textbooks (Ind.2.1.III)
Provide school grants to school
committees
Build capacity of MEPSA (central and
decentralized administration) and
communities for school building
management
Support the preparation of school
health, nutrition and HIV/AIDS
implementation plan
Support the preparation of ECD and
Literacy implementation plans
Support the set-up of a monitoring
system able to routinely assess student
learning
14
C.4 Sustainability
50. The sustainability of this operation is enhanced by its strong foundation in the
Government’s ESP (2010-2020) and Sector MTEF (2010-2012). This ensures strong
Government ownership of the project, with the vision, goals and implementation arrangements
articulated by the Government’s senior management responsible for the sector. It is important
however, not to underplay the challenge: although macro-economic performance has improved
over the past couple of years, the system still remains relatively fragile.
51. The financing gap has been estimated thanks to a process of policy dialogue on the key
sector trade-offs and with the use of a sector-wide financial simulation model. The approach
used was in line with what is good practice for preparing a sector MTEF, based on three
pillars24
: (i) a bottom-up multi-year cost estimates (based on needs), (ii) a top-down multi-year
projections of resources envelope targets (what is affordable and implementable according to
capacities) and (iii) an institutional (political-administrative) decision–making process to
integrate the above two pillars by making the necessary trade-offs.
52. The financing gap of the 2010-2012 sector-wide MTEF is US$182 million but it accounts
only for a gap regarding investment costs; there is no gap on recurrent costs (with the exception
of the school grant to be funded under the EFA-FTI Operation). The EFA-FTI CF application is
projected to comprise about 6.8 percent of the overall program costs and would close 25 percent
of the financing gap. It is expected that part of the budget support from European Union (US$
59 million for 2010-2012) will also help to reduce the remaining gap on investment as well as
expected resources from World Food Program for the school feeding program. UNICEF plays a
leading role in advocacy for additional financing. There are also good prospects from AFD and
Germany for financing the TEVET sub-sector. In case these financings do not materialize, the
only effect would be to reduce investment activities, without affecting recurrent activities.
53. There is no sustainability issue regarding salaries of the necessary new teachers as
evidenced by the fact the Government planned that 2,900 new teachers will be annually hired in
the period 2010-2012 (see table below).
Table 2: Number of teachers’ recruitment, past and planned
Level of schooling Actual Planned
2005 2006 2007 2008 2009 2010 2011 2012
Pre-school and Primary 1039 915 0 1655 0 2000 2000 2000
Lower Secondary 509 308 0 439 0 750 750 750
Upper Secondary 188 188 0 338 0 150 150 150
Total 1736 1411 0 2432 0 2900 2900 2900
Source: MEPSA Department of Human Resources
54. Fiscal sustainability. The fiscal implications for sustainability of the project are very
modest. In line with Government policy, most of the project expenditure is on investment items
and particularly civil works. The project does not finance public service salary and the only
24
See Medium Term Expenditure Frameworks: From Concept to Practice. Preliminary Lessons from Africa,
February 2002, World Bank, Africa Region Working Paper Series No. 28
15
recurrent costs of the project are the school grants that account for only $ US1.8 million per
year. It is expected this school grant will merge with the Government grant for compensating
school fee abolition on a mid-term perspective. There are on-going discussions with the
Government in order to increase the school subsidies (for compensating the school fee
abolition) and then take over from the additional financing of the EFA-FTI CF for providing
more resources at the school level.
55. Institutional sustainability: The ability of the sector to fulfill its ambitious objectives is
directly related to the stability of the senior management team and core directors in the system.
The World Bank team is encouraged by (i) the fact the current management team has been
maintained for the past three years, including most of the central and regional directors25
and (ii)
the recent recruitment by the Ministry of Education of professional staff recently graduated, at
medium management positions in the key central departments.
C.5 Risks
Table 3: Description and rating of risks and mitigation measures
Risk factors Description of risk Risk
rating
Mitigation measures Residual
risk
rating
Country and/or Sub-National Level Risks
Macroeconomic
Framework Macroeconomic
management:
Main risk could stem from
an inability of the
Government to maintain a
stable medium-term
framework or from the
vulnerability of the Togolese
economy to climatic or
commodity price shocks,
such as the recent sharp
increases in international
food and oil prices. These
shocks could result in,
among others, a risk of
falling back into arrears or
exacerbating the already
precarious financial situation
of several banks, with a
possible adverse spillover to
the region.
M The IMF and the World Bank will
continue to closely monitor the
Government’s macroeconomic
performance, including providing
ongoing advisory assistance to the
financial sector reform program through a
Financial Sector and Governance project
recently approved, and supporting a
coordinated regional response to the food
and oil price increases.
The World Bank support to address rising
food prices in Togo includes the
Community Development Project,
approved in June 2008 which contains
some targeted measures to support food
production. This is supplemented by
additional financing under the Global
Food Response Program (GFRP). A
further additional financing for the
Community Development Project is being
prepared to continue supporting the
School feeding component of the ongoing
project and introduce a new component to
support temporary employment, create
income opportunities, and support the
rehabilitation of environmentally fragile
areas.
M
25
An anecdote that is representative of the current professional spirit in the MEPSA is the fact that the Head of the
Statistics Unit obtained a grant to study abroad during one year but finally decided to go for the distance learning
program in order to stay in service at MEPSA in a period of time when his skills and experience were key for
preparation of the ESP and related projects.
16
Country
Engagement with
World Bank
On May 30, the World
Bank Board discussed an
Interim Strategy Note (ISN)
covering the period FY08-
10. As part of this Interim
Strategy, an Economic
Recovery and Governance
Grant (ERGG) was
approved which was used
for the clearance of Togo’s
arrears to IDA and budgeted
fiscal needs in the period
immediately after arrears
clearance. This has led to
the lifting of the suspension
of World Bank
disbursements for Togo after
more than six years of
suspension. Normalization
of relations with the World
Bank has (i) set the stage
for provision of regular IDA
resources; (ii) facilitated
Togo’s efforts to reestablish
relations with the rest of the
international community,
including both other
creditors and donor
agencies; and (iii) paved the
way for Togo toward debt
relief under the HIPC
Initiative.
M The IMF, the World Bank, the AFDB and
Paris Club creditors have coordinated
closely with the Government to ensure a
coordinated arrears clearance process and
to avoid a subsequent relapse into arrears.
These arrangements, together with the
prudently designed macroeconomic
framework under the PRGF would
mitigate the risk of Togo falling back into
arrears before reaching the HIPC
completion point (projected for end
2010).
M
Governance/
Systemic
Corruption
Public Sector management
and institutions:
With weak institutional
capacity and remaining
governance and
transparency problems,
project and fiduciary risks
will remain significant.
Transparency,
Accountability and
corruption in public sector
H The Economic Recovery and Governance
Grant and subsequent annual
development policy operations will
support critical governance reforms in
public finance management (PFM) and
key public enterprises.
Also, a LICUS grant is financing an
evaluation of the procurement system and
preparation of a new procurement code
consistent with the West African
Economic and Monetary Union
(WAEMU) Directive, and providing
technical assistance to improve economic
governance of the state-owned enterprises
operating in the cotton and phosphate
sectors.
A Public Expenditure Management and
Financial Accountability Review
(PEMFAR) update during CY2008,
jointly with other donors, has provided
input to strengthening the PFM reform
agenda.
The CDD approach pursued through the
LICUS Trust Fund grant and through the
new Community Development Project
S
17
will build capacity at the community
level. Other donors, including the
European Union and the AfDB, are also
providing assistance to strengthen
institutional capacity.
Other (for
example security
risks,
political/election
risks, country
engagement with
other donors,
social and
environmental
risks at the country
level)
Despite progress in building
consensus, a resurgence of
influence of non-reformers
or of other political tensions
could delay or stall
implementation of the
Government’s reform
program. A delay could
jeopardize the attainment of
program objectives, dampen
donor support, and cause
political instability. Also,
slow progress in addressing
the most pressing social and
economic problems could
lead to instability in volatile
areas and adversely affect
security conditions, the
business climate and
macroeconomic
management.
M There is a risk that the security and
political situation deteriorate following
the last presidential elections (held on
March 4, 2010). However, the political
risk is mitigated by the strong
commitment to reform by the top political
echelons. Close coordination with the
IMF, AfDB and other donors and the
intensified dialogue will help ensure that
top priority is given by the Government to
reform in the phosphates, energy, cotton
and financial sectors. The first PRSP,
discussed by the Boards of the
IMF/World Bank in December 2009, has
provided an opportunity to foster national
consensus across the Togolese society
and among Government representatives
on a medium-term reform agenda.
M
Sector-specific Risks
Institutional
stability
Following the Presidential
Elections in March 2010,
high-level political changes
and/or reorganization in the
four Ministries currently in
charge of the education
sector could impede
progress in the
implementation of the ESP
and EFA-FTI operation.
S Use of PCU staff contracted by the
Projects
Institutional arrangements with a high-
level sector-wide committee and a
coordination committee with a permanent
technical secretariat comprising
professionals from the four Ministries in
charge of education sector (see Annex 6)
Project activities are focused on primary
education whose charge is only on one
Ministry.
M
Operation-specific Risks
Implementation
capacity
Implementation capacity
risk arises from the lack of
sufficient professional staff
and weak institutional
capacity and coordination in
the wake of the 15 year
history of socio-political
instability and very limited
foreign assistance.
S Consideration of implementation capacity
in the objectives, grant amount, and
implementation plan for the EFA-FTI
operation, based on the capacity
assessment conducted during project
preparation
Strong focus on capacity strengthening
activities in the projects supporting the
ESP (in particular the AFD-funded
project, UNICEF project and the
proposed EFA-FTI project), including the
provision of technical assistance in key
area.
Contracting of the PCU staff directly by
the project
Design of the EFA-FTI Operation with a
gradually scaled up implementation
approach in mind and intensive
M
18
supervision
Adequate training of grassroots
communities (in the form of school-based
management committees, COGEP),
involved in the implementation of
activities according to simplified
procedures acceptable to the World Bank
(notably regarding school construction
management in rural areas) and to play an
effective role in increasing accountability
in the use of funds (regarding school
grants)
Use of the network of communities
trained (and relevant documentation) in
the previous CDD projects (World Bank-
funded and EU-funded) for the EFA-FTI
project.
Procurement MEPSA has a long
experience in procurement
but not with the World
Bank’s procurement
procedures.
S Full compliance with IDA Procurement
Guidelines which override national
regulations.
Submission to the World Bank before
negotiations of an acceptable 12 months
procurement plan
Recruitment of an additional procurement
consultant in the PCU before
effectiveness and nomination of a civil
servant counterpart in MEPSA in capacity
to learn.
Procurement training for implementation
entities.
M
Financial
management
Weak financial management
and risk that funds will not
be used for the intended
purpose.
Control risks.
H Implementation of recommendations of
the financial management assessment (see
Annex 7), in particular recruitment of two
additional qualified finance
specialist/accountants in PCU, along with
annual external audits and
implementation of a computerized
accounting system.
Preparation of a financial and
administrative procedures manual
Transparency via advertisement in the
local newspapers of the list of schools
receiving grants and textbooks and
amount to be received.
Audit and Public Expenditure Tracking
Survey (in particular regarding textbooks
and school grants) will be done within the
project.
S
Social and
Environmental
safeguards
The environmental
screening category is B
M To address potential negative impacts
consistent with the requirements of these
safeguard policies, the Government has
prepared an Environmental and Social
L
19
Management Framework and a
Resettlement Policy Framework.
Environment and Safeguard World Bank
colleagues will be consulted if the project
objectives or components should change.
Overall risk (including reputational risks) S M Risk Rating: H (High Risk), S (Substantial Risk); M (Moderate Risk), L (Low or negligible Risk)
56. In IDA’s assessment, the potential benefits of the proposed operation outweigh the
residual risks and warrant EFA-FTI Catalytic Fund assistance for implementing critical
activities in a coordinated fashion with other donors, while supporting risk mitigation actions to
maximize the project implementation in a timely way.
C.6 Effectiveness and disbursement conditions
Conditions for effectiveness:
a) The Recipient has adopted the Project Operations Manual;
b) The Recipient has established the PCU within MEPSA;
c) The Recipient has recruited for the PCU (i) a Project coordinator; and (ii) a procurement
specialist;
d) The Recipient has adopted an Agreed Annual Work Plan covering the period between the
Effective Date and December 31, 2011 and the World Bank has issued its Annual
Confirmation relating thereto, and
e) Ratification and Legal Opinion (Standard condition of Effectiveness).
Conditions for disbursement of all components:
No withdrawal shall be made in respect of an Agreed Annual Work Plan unless the World Bank
has issued its Annual Confirmation for such Agreed Annual Work Plan
Conditions for disbursement of Components 1.2 (school buildings in rural areas) and 2.2:
No withdrawal shall be made until the Recipient has recruited for the PCU a communities
training coordinator
Conditions for disbursement of Component 1.1 (school buildings in urban areas) and 2.3:
No withdrawal shall be made until the Recipient has contracted the Delegated Contract Manager
under terms and conditions satisfactory to the World Bank
Specific dated covenants:
a) The Recipient shall, no later than four months after the Effective Date, appoint external
auditors; and
b) The Recipient shall, no later than four months after the Effective Date, recruit for the
PCU a financial management specialist and an accountant.
20
D. APPRAISAL SUMMARY
D.1 Economic and financial analyses
57. There is a clear budget priority for education. The share of public recurrent budget26
allocated to education was 22.7% of domestic resources in 2009, higher than the FTI benchmark
of 20% and of the African average of 20.4%.
58. During the 1995-2007 period, total expenditure for education increased (in constant 2007
prices) from CFAF 35.7 to 45.8 billion, which corresponds to a 2.1% average annual growth rate.
Expenditure in education is mainly recurrent spending; in 2007 capital expenditure was only
CFAF 1.7 billion while recurrent expenditure was CFAF 44.1 billion.
59. Despite a comparatively high budget allocation for education, due to the high
demographic pressure, the current public investment in Togo is not sufficient to support the
needs, in particular for reaching Universal Primary Completion. Togo is one of the less aided
countries on the continent. During the 2004-2006, the total external aid accounted for only 3.8%
of GDP, compared to an average of 10% of GDP in Africa.
60. Households are still asked to contribute a lot to sector financing even if the recent school
fee abolition (started in 2008/09) goes towards reduction of that contribution for pre-primary and
primary. In 2006 households were financing on average 35.6% of the cost of education (and 45%
of the cost of primary education). Since then, the school fee abolition has reduced this share but
the household contribution is likely to stay high, in particular because the school fee abolition did
not concern the community schools (Ecole d’Inititative Locale, EDIL) of which functioning is
almost entirely funded by parents.
61. Public spending distribution by level of schooling is in line with the development needs.
The share for primary education (40%) is a bit lower than both the African average (44%) and
the EFA-FTI reference benchmark (50%). Nevertheless, due to a share for education in the
budget higher than the FTI reference (28% in Togo compared to 20% in the EFA-FTI indicative
framework), primary education receives 11% of total recurrent expenditure, which is higher than
what is recommended in the indicative framework (10% = 50% x 20%). Additionally, the fact
that lower secondary education is more advanced in Togo than on average in Africa (Gross
Enrolment Ratio of 60% in Togo versus 50% for the African average) warrants a higher share of
expenditure allocated to secondary education.
62. Recurrent expenditure is not sufficiently allocated towards teaching material, at all levels
of education. In primary education, 95% of recurrent expenditure is allocated to salaries.
Recurrent expenditure other than teachers’ salaries is only 10% in Togo, much lower than the
EFA-FTI reference benchmark (33%). It has negative effect on the availability of textbooks and
other teaching material in classrooms.
63. A thorough financial analysis and financial simulation exercise was carried out in order
to plan realistic ESP targets and sound policy reforms (for all levels of education) that address
the key issues presented above. The policy choices aimed to ensure the sustainability of the ESP
are presented in the letter of sector development policy. The Government prepared a 2010-2012
26
Debt service excluded
21
Sector MTEF in line with mid-term implementation capacity and with longer term ESP targets.
The MTEF includes all financing for the sector, both from Government and from donors (see
Annex 5).
D.2 Technical
64. The project is designed to support the Government of Togo in implementing the first
phase of the ESP, as described in the 2010-2012 MTEF of which activities are planned to be
funded by both Government and donors.
65. The activities of the ESP and of the project are related to the findings from a recent sector
study (Light Country Status Report prepared in 2007 -CSR) which highlighted the main
strengths and weaknesses of the education system. The priority issues identified include limited
and inequitable access to primary education resulting mostly from supply constraints, poor
quality and low internal efficiency (high repetition and dropout rates), lack of resources
allocation to school level and low institutional capacity for consistency in teachers’ deployment.
66. The design of the school building component, with a community-based approach for
constructions in rural areas, was based on lessons learned from international research27
and from
the experience of the recent/on-going CDD projects implemented in Togo.
D.3 Fiduciary
67. Based on the quasi-absence of education World Bank projects for ten years and the
assessment of weak implementation capacity, the MEPSA will therefore require technical
assistance and training to enhance capacity. Procurement and financial management capacity has
been assessed. Annexes 7 and 8 describe financial management and procurement risks and
provide the agreed action plans to mitigate such risks.
68. Financial Management (FM). The conclusion of the FM assessment is that FM
arrangements for the Project need to be improved in order to satisfy the World Bank’s minimum
requirements under OP/BP10.02, after which they will be adequate to provide, with reasonable
assurance, accurate and timely information on the status of the Project as required by the World
Bank. The main areas of improvement are (i) the preparation of a Financial and Administrative
Procedures Manual, (ii) the recruitment of one additional Financial Management Specialist and
one accountant with qualifications and experience satisfactory to the World Bank, (iii) the
development and implementation of an accounting software, and (iv) the recruitment of a
financial external auditor with qualifications and experience satisfactory to the World Bank. The
FM risk for the project is rated as High and is expected to reduce to Substantial when mitigating
actions are implemented.
69. Procurement assessment. MEPSA has experience in the procurement of works,
particularly for classrooms constructions. The procurement process is conducted at central level
and the supervision of works is done at regional level. Nevertheless, the national procurement
system and procedures are being reviewed (under the national procurement system reform), there
is no standard bidding documents, and no national procurement manual acceptable to the World
27
See S.Theunynck, School Construction Strategies for Universal Primary Education in Africa. Should
Communities Be Empowered to Build Their schools?, Africa Human Development Series, World Bank, 2009
22
Bank. Then, the main issues/risks regarding the procurement for project implementation are lack
of: (i) procurement specialist; (ii) internal control; and (iii) appropriate record keeping.
70. The measures agreed upon to strengthen the framework of procurement within the
MEPSA are: (i) recruiting an additional procurement consultant in the PCU and nominate a civil
servant as a procurement officer of the project; (ii) strengthening, through specific training and
learning-by-doing, the procurement capacity of procurement officers; (iii) set-up an internal
control through the project financial and administrative manual; and (iv) use of World Bank
Procurement Guidelines and standard bidding documents for international competitions and use
other World Bank’s approved documents for national competitions.
71. Procurement Implementation Arrangements. For project implementation purposes,
the Government and the World Bank agreed to use three levels of procurement implementation
entities: (i) the central level with MEPSA Project Coordination Unit, (ii) the urban level with
Contract Management Agency and (iii) the rural level with grassroots Communities.
72. Procurement by MEPSA: The Project Coordination Unit (PCU) through the two
procurement specialists and the nominated civil servant procurement officer will be responsible
for the coordination of all procurement activities. To strengthen the capacity of MEPSA, the
Procurement Specialists will work together with the Procurement Officer.
73. Procurement by Contract Management Agency (CMA): The World Bank agreed with the
Government to delegate the constructions of classrooms in urban areas and of regional teachers’
training centers and their supervisions to a Contract Management Agency (CMA). A contract
will be signed between the MEPSA and the CMA.
74. Procurement by Grassroots Communities: The procurement activities at Community level
will concern essentially the construction and equipment of classrooms. The school-based
management committees (COGEP) will carry out the implementation of procurement under the
supervision of DRE through the decentralized staff of the PCU. Prior to disbursement to the
communities, they will receive systematically the required basic procurement and disbursement
trainings. For the implementation of this CDD approach, the MEPSA will benefit from the
support of the World Bank financed current CDD project (PDC) management and will use the
simplified procedures and materials used by the CDD project.
75. The procurement activities will be carried-out on the basis of the Procurement Plan
agreed between the Government and the World Bank for project implementation. The
Procurement Plan will be updated in agreement with the World Bank at least annually.
D.4 Social
76. The social issues that are of particular concern include the lack of parity in terms of
access (i) between boys and girls, (ii) between urban and rural areas and (iii) across regions to
the detriment of the poorest regions. While the EFA-FTI Operation will be implemented on a
national scale, it will use specific criteria for school selection which aims to improve the equity
of public education financing. In particular, the EFA-FTI Project will (i) target school buildings
in rural areas and under-served regions, (ii) build classrooms that are gender and disability-
friendly and (iii) base school grants’ amount on the schools’ context and existing resources in the
school.
23
D.5 Environment and Safeguard Policies
77. The project has triggered OP 4.01 Environmental Assessment and OP 4.12 Involuntary
Resettlement due to potential negative environmental and social impacts related to the
construction of schools. The environmental screening category is B. To address potential
negative impacts consistent with the requirements of these safeguard policies, and thanks to
financial assistance from UNICEF, the Government has prepared an Environmental and Social
Management Framework (ESMF) and a Resettlement Policy Framework (RPF) disclosed in
January 2010. The ESMF and RPF lay out guidelines to mitigate the potential negative impact of
construction and information process with affected populations, the planting of trees, the use of
environmentally friendly construction equipment, strict enforcement of work safety measures,
strong supervision of work quality, and others.
Safeguard Policies Triggered by the Project Yes No
Environmental Assessment (OP/BP/GP 4.01) [X] [ ]
Natural Habitats (OP/BP 4.04) [ ] [X]
Pest Management (OP 4.09) [ ] [X]
Cultural Property (OPN 11.03, being revised as OP 4.11) [ ] [X]
Involuntary Resettlement (OP/BP 4.12) [X] [ ]
Indigenous Peoples (OD 4.20, being revised as OP 4.10) [ ] [X]
Forests (OP/BP 4.36) [ ] [X]
Safety of Dams (OP/BP 4.37) [ ] [X]
Projects in Disputed Areas (OP/BP/GP 7.60)* [ ] [X]
Projects on International Waterways (OP/BP/GP 7.50) [ ] [X]
D.6 Policy Exceptions and Readiness
78. The project is entirely consistent with World Bank Policy and requires no exceptions
from World Bank policies, and meets the regional criteria for readiness for implementation.
79. The status of projects’ conditions of effectiveness and disbursement is as follows:
Planned date
for
completion
The Recipient has adopted the Project Operations Manual 12/15/2010
The Recipient has established the PCU within MEPSA 11/15/2010
The Recipient has recruited for the PCU (i) a Project coordinator; and (ii) a procurement
specialist
01/15/2011
The Recipient has adopted an Agreed Annual Work Plan covering the period between the
Effective Date and December 31, 2011 and the World Bank has issued its Annual
Confirmation relating thereto
12/15/2010
The Recipient has recruited for the PCU a communities training coordinator 01/15/2011
The Recipient has contracted the Delegated Contract Manager under terms and
conditions satisfactory to the World Bank
01/15/2011
* By supporting the proposed project, the Bank does not intend to prejudice the final determination of the parties' claims on the
disputed areas
24
Annex 1: Country and Sector Background
Togo EFA-FTI Catalytic Fund Grant
1. Located in the Gulf of Guinea between Benin and Ghana, Togo is a country with an
estimated population of 7.1 million (2010 UN projections) which is growing at 2.7 percent
annually and likely to double in 25 years. With a population density of 119 people per sq. km, it
is much denser than the Sub-Saharan African average (35 people per sq. km). Per capita income
(US$437 in 2009) is low compared to Sub-Saharan Africa (US$1,082) and Low Income
Countries (US$524) averages. Togo’s growth performance has been among the weakest in Sub-
Saharan Africa, with per capita income declining by an average of one percent annually since the
early 1980s. As a result, poverty has increased significantly and it is estimated to affect 61.7
percent of the total population (2006), 74.3 percent of the rural population and more than 90
percent in the northernmost region (Savanes). Togo has a very poor human development index
(HDI), ranking 159 out of 182 countries. Togo has not been badly affected by the global
economic crisis to date, though downside risks remain.
2. Since 1990, Togo experienced a long period of socio-political crisis that ended with the
parliament elections in October 2007. Encouraged by the success of those elections and the new
government’s reform platform, donors reengaged with Togo after more than 15 years of very
limited assistance. New Presidential elections were held in March 2010 and were well received
by the observers. Togo reached the Heavily Indebted Poor Countries (HIPC) Initiative decision
point in November 2008 and expects to reach Completion Point by end-2010.
3. Togo’s general education system is divided into four levels: (i) a three-year pre-school
cycle designed for 3-5 year olds, (ii) a six-year primary cycle designed for 6-11 year olds, (iii) a
seven-year secondary education cycle designed for 12-18 years old, consisting of a four-year
junior level and a three-year senior level and (iv) a higher education system (two public
universities and private institutions). There are also (i) technical and vocational education at the
junior and senior secondary levels and (ii) literacy programs.
4. Due to the long-lasting socio-political crisis coupled with economic mismanagement and
the withdrawal of donor support, the education sector has made little progress towards the
Millennium Development Goal (MDG). The major issues facing the education sector are
described below:
5. Low completion: The primary completion rate (PCR) is the same in 2009/10 as it was
ten years ago (63%). Although Togo is still in the top-half of Sub-Saharan countries, reaching
100% completion rate remains a challenge. There is almost universal access to primary first
grade but the education system still faces the important problem of a high level of drop-outs that
hinder the completion rate. Only 61% of grade 1 new entrants complete the primary cycle
(compared to 71% on average in SSA). The problem of drop-outs is due to both a lack of
classrooms (11% of Togolese schools have not enough facilities for providing education to all
the six grades of primary28
) and to the fragility of demand for schooling. The cost of schooling
for households is the main factor reducing school demand (in particular for poorest families). In
2006, due to the existence of community schools (EDIL) with teachers paid by parents and to the
28
In the regions of Kara, Savanes and Centrale, the proportions of such schools are even higher (see ESP).
25
existence of school fees, the financial contribution of households for primary schooling was 45%
of the total recurrent cost.
6. Recent school fees abolition: Consistent with the emphasis on reaching the MDG, the
Government abolished the pre-primary and primary school fees in 2008/09. It helped reduce the
burden for households and has started to effect access to school for the poorest families29
.
Nevertheless, the public financial compensation (so far FCFA 2 billion annually) for counter-
balancing the loss of resources for schools is far below the needs. Moreover, only a slight
proportion of the financial compensation is managed by the school itself.
7. Disparities: In 2006, PCR was 61% for girls and was 76% for boys. Disparities between
rural and urban areas and between levels of family income were even larger. PCR in rural areas
was only 60% (compared to 84% in urban areas) and PCR for the 40% poorest families was only
52% (compared to 88% for the 20% richest).
8. Poor quality: 28% (equal to African average) of pupils leaving school after completing
the primary cycle do not stay sustainably literate at adult age. It is associated with: (i) the
significant shortage of teaching material, in particular textbooks (one mathematics textbook per
2.1 pupils, and one reading textbook per 2.0 pupils), (ii) discontinued teacher training delivery in
2002 due to budget constraints that prevented the hiring of new teachers (36% of teachers are
non-trained parent-teachers) and (iii) the lack of resources for operating budget at the school
level (teachers’ and staff’s payroll costs account for 95% of total recurrent expenditure in
primary education, one of the highest percentages in Africa).
9. Weak management and institutional capacity: Procurement and financial management
capacities in the Ministries of Education are largely improvable, in particular due to the quasi-
absence of externally-financed projects during the last 15 years. As another key issue regarding
need for capacity improvement, Togo is one of the lowest achievers in terms of consistency in
teacher deployment.
10. Government Strategy. Following an exhaustive process of technical work and
consultation with stakeholders, the Government prepared in 2008/09 a letter of sector
development policy, a 2010-2020 Education Sector Plan (ESP) and a 2010-2012 Sector Medium
Term Expenditure Framework (MTEF) for the three first years of ESP implementation. The
letter of development policy was adopted by the Council of Ministers in June 2009 and the ESP
was approved by the Head of State in March 2010. The ESP is an exhaustive, sector-wide plan,
with a wide range of ambitious –but credible- targets and policies on all sub-sectors. The priority
objective is to achieve universal quality primary education by 2020. It proposes a balanced
development of the education and training system as a whole with emphasis on improving
quality and external efficiency of post-basic education for contributing better to economic
growth.
29
The enrolment in Pre-school and in Grade 1 has increased by respectively 54% and 27% between 2007/08 and
2008/09. Access rate to Grade 1 jumped from 107% in 2007 to 129% in 2009.
26
Annex 2: Major Related Projects Financed by the World Bank and/or other Agencies
Togo EFA-FTI Catalytic Fund Grant
1. Since 1980, World Bank lending to the education sector in Togo consisted of 4 IDA
credits totaling $36.9 million. The last project in the education sector was the Education
Rehabilitation Project, which closed in June 30, 2001. The objective of the project was to reverse
the rapid deterioration in the education sector in Togo following several years of social and
political unrest and a decade of declining enrolment and quality. The Table A2.1 below
illustrates the issues and results of the two most recent World Bank education projects in Togo.
Table A2.1: Issues and results of the most recent World Bank-financed Projects in
Education
Project Sector Issues
Latest Supervision Rating
Implementation
Progress (IP)
Development
Objective
(DO)
Technical Education and
Vocational Training –
P002872 (1991-1998)
Counterpart funding; Change of the Project
Coordinator; Unavailability of the training
tax.
Unsatisfactory Unsatisfactory
Education Rehabilitation –
P002889 (1996-2001)
Financial management issues; Risen
number of auxiliary teachers; Procurement
bottlenecks causing delay in Project
implementation; Weak overall management
Satisfactory Satisfactory
2. Several donors are supporting the education sector in Togo. The main donors include
Islamic Development Bank, PLAN International TOGO, DANIDA, AFD, IDA and UNICEF
(see Table A2.2 below and Table A5.1 in Annex 5).
Table A2.2: Summary of Donor main Contributions to education sector
Development Partners Area of Support Amount Duration
IsDB Primary (School construction,
Textbooks, furniture)
US$4 million 2010-2012
PLAN TOGO Pre-primary, primary, Literacy US$5 million 2010-2012
DANIDA Primary & Literacy (School
constr., well drilling)
US$430,354 2010
AFD
Primary (Technical Assistance,
Teacher Training, local
development)
US$14 million 2010-2012
AFD/AeA Primary (capacity building at local
level)
US$303,426 2010-2012
UNICEF Primary (School construction,
Capacity Building, Textbooks)
US$5 million 2010-2011
PDC IDA Primary (school construction,
school feedings)
US$2 million 2010-2012
European Union Global Budget Support US$33.2 million 2009-2011
WFP School Canteens Still in research
for funding
2010-2011
27
Annex 3: Results Framework and Monitoring
Togo EFA-FTI Catalytic Fund Grant
1. The Togo Education Sector Plan 2010-2020 identifies four main objectives for the sector:
(i) Achieving universal primary completion by 2020, (ii) Expanding coverage of preschool,
including the development of community experience to the benefit of rural people, particularly
the most disadvantage, (iii) Increasing access and completion of lower secondary education
especially in rural areas and (iv) Developing upper secondary education, technical and vocational
training and higher education in line with the demands of the Togolese economy.
2. The current operation is embedded in the Education Sector Plan and aims to support the
implementation of its first phase (2010-2013), focusing on the first main ESP objective. The
Project Development Objective (PDO) is to increase coverage of and retention in basic
education, support improvements in the quality of teaching and strengthen institutional and
community capacity in implementation and management.
3. The Results Framework below is based on Logical Diagnostic Tool recently developed
by the World Bank Africa Region30
. It consists in using typical results chains that presents the
input/output/outcome/impact causal logic. Objectives are hierarchized and linked to performance
indicators.
4. Indicators are named after the component and sub-component they are referring to. For
instance, the indicators for monitoring the sub-component 2.1 (Textbooks) are numbered from
“Ind. 2.1.I” to “Ind. 2.1.IV”.
5. The Gender Parity Index in primary education (FTI and IDA Core Indicator)31
is not
included in the project’s results and monitoring framework because there will not be direct
impact of the project on gender. Nevertheless, the indicator will also be monitored as one of the
key ESP indicator. The ESP goal regarding that indicator is an increase from 0.84 in 2009 to 0.90
in 2012. Although, indirect impacts from the Project are expected as a result of building new
classrooms in locations where enrolment ratios, and consequently, gender parity indices are the
lowest. There is also international evidence that building schools with separated latrines (which
is the case of this Operation) has a significant impact on girls’ attendance.
30
N.O. Mugwagwa, V. Gyllerup, Powerpoint Results in Bank Projects. Africa Region Experience with Results
Framework 31
The Primary Gender Parity Index is defined as the ratio of the female-to-male values of the gross enrolment rate
in primary education
28
3.2a. Improved capacity of the
MEPSA for ESP implementation
(Ind.3.I)
Build capacity of MEPSA according to
the time-bound capacity-building and
skills transfer implementation plan
(Ind 3.I)
Increased
coverage
and
retention of
primary
education,
improvemen
ts in quality
of teaching,
strengthened
institutional
and
community
capacity (PDO)
2. Improved
availability of
teaching material and
of trained teachers
(Component 2)
3. Strengthened
institutions and
communities
(Component 3) (Ind
3.I)
2.1. Improved availability of
textbooks (Ind.2.1.I, Ind.2.1.II)
2.3. The regional teacher training
centers are running (Ind. 2.3.I)
2.2. Increased resources and
responsibilities for school
committees and improved
accountability (Ind.2.2.I)
3.1. Improved efficiency and
management of school building
program (Ind.3.1.I, Ind.3.1.II)
3.2b. Learning assessment system
up and running (Ind 3.2.I)
3.2c. Improved consistency in
teacher deployment (Ind. 3.2.II)
3.2d. ECD and Literacy
implementation plans approved
and implementation started (Ind.
3.2.III, Ind.3.2.IV)
3.2e. School health, nutrition and
HIV/AIDS implementation plan
approved and implementation
started (Ind.3.2.V)
Build and equip regional teacher
training institutes and Regionalize
training and recruitment of teachers
(Ind. 2.3.I)
Disclose in schools the individual
school grant amount and calculation
method
Build classrooms in urban (with
AGETUR executing agency) and rural
(with communities) areas according to
agreed procedures (Ind.1.1.I, 1.1.II)
1.1. Improved availability of
satisfactory built schools in under
equipped areas (Ind.1.1.III)
1. Increased access and
retention in primary
education (Component
1) (Ind.1.I)
Develop new curricula and new
textbooks with Gov. owned copyright
(Ind.2.1.IV)
Provide public/EDIL primary schools
with Mathematics and Reading
textbooks (Ind.2.1.III)
Provide school grants to school
committees
Build capacity of MEPSA (central and
decentralized administration) and
communities for school building
management
Support the preparation of school
health, nutrition and HIV/AIDS
implementation plan
Support the preparation of ECD and
Literacy implementation plans
Support the set-up of a monitoring
system able to routinely assess student
learning
29
6. Presented as the classical way, the results monitoring framework for the operation is the
following:
PDO Key Performance Indicators Use of Information
The objectives of the Project are (i) to increase coverage of and retention in basic education, (ii) support improvements
in the quality of teaching, and (iii) strengthen institutional and community capacity in implementation and
management of the Project.
Improved coverage and retention in
basic education
1-Primary completion rate
2-Direct project beneficiaries (number) – of which
female (%) (Students enrolled in schools
constructed/extended)
Monitor the overall progress
on the achievement of the
project's objectives
Increased availability of inputs for
quality Ratio textbooks: students in primary
Strengthened institutional and
communities’ capacity for
implementation and management
Time-bound capacity building and skills’ transfer
(from PCU) plan32
approved and at least 75 percent of
activities for each year are successfully implemented,
as evaluated by the joint donor supervision mission.
Intermediate Outcomes Intermediate Outcomes and Output Indicators Use of Information
Component 1: School Building
Monitor the progress on the
achievement of the
component 1 objectives, in
particular regarding the
potentiality of scaling-up the
school building program
Improved availability of satisfactory
built schools
Additional classrooms built or rehabilitated at the
primary level resulting from project intervention
(number)
% of resources managed by CMA and communities
according to agreed procedures
School building program overall satisfaction of actors
and beneficiaries
Component 2: Quality
2.1 Textbooks
Actual number of textbooks purchased and delivered to
primary school (% compared to planned number)
Monitor the progress on the
achievement of the
component 2 objectives, in
particular on the capacity of
the Ministry to deliver
effectively the inputs
necessary for improving
quality
Improved availability of textbooks
New Mathematics and Reading textbooks with
Government- owned copyright completed
2.2 School grants Increased resources and
responsibilities for school
committees and improved
accountability
Number of schools that received the grants compared
to the planned number
2.3 Teacher training institutes Increased number of teacher training
institutes
The three regional teacher training institutes are
running
Component 3: Institutional
strengthening
3.1 Capacity-building for, and
management of the school building
Number of communities having GMT training
Monitor the progress on the
achievement of the
component 3 objectives, in
particular on the effectiveness
32
The capacity building plan was prepared using the “EFA-FTI Guidelines for Capacity Building Assessment” and
other references.
30
Improved efficiency and
management of school building
program
Number of financing agreements signed between
inspectorates and communities
of the MEPSA capacity
strengthening and of the skills
transfers from PCU staff to
MEPSA staff in headquarters
and regional offices and to
communities.
3.2 Capacity-building of the
MEPSA for ESP implementation
Improved assessment of student
learning
System for primary student learning assessment is up
and running (0-4 scale, see footnote below for the
details)
Increased consistency in teacher
deployment Primary school teacher's deployment consistency index
Improved quality of ECD and
Literacy
Preschool and literacy implementation plans prepared
and approved
Improved school health, nutrition
and HIV/AID implementation plan
School health, nutrition and HIV/Aids implementation
plan prepared and approved
Target value Data collection and reporting
Project Outcome Indicators Baseline
2009 2011 2012 2013
Frequency and
Reports
Data Collection
Instruments
Responsibility of
Data collection
Primary completion rate (%) (1.I) 63 68 71 74
Annual, Education Statistical
yearbook
Annual, Education Statistical
yearbook
EMIS
EMIS
MEPSA/DPEE
MEPSA/DPEE
Direct project beneficiaries (number) – of which female (%) (Students enrolled in
schools constructed/extended, cumulative)
0 0 25 000 75 000
Ratio Mathematics textbooks: students in
primary (2.1.I) 1:2.1 1:2.1 1:1.7 1:1.5
Ratio Reading textbooks: students in primary
(2.1.II) 1:2.0 1:2.0 1:1.7 1:1.4
Time-bound capacity-building plan: % of
activities completed(3.I)
Plan
Approved 75% 75%
Annual, Capacity-Building plan
progress report
External
evaluation PCU/DRH
Intermediates Outcome/Output Indicators
Additional classrooms resulting from project
intervention, % compared to planned numbers
(1.1.I)
80% of 163 80% of
285
80% of
367
Annual, Project Progress Report
EMIS and surveys
PCU/ DPEE
% of resources manage by CMA and
communities according to agreed procedures
(1.1.II)
- 80% 80% 80%
School building program overall satisfaction
of actors and beneficiaries (1.1.III) -
Evaluation
Instrument approved
70% 70%
Actual number of textbooks purchased and
delivered to primary school, % compared to planned number (2.1.III)
-
85% of 1.6
million - -
Annual, Project
Progress Report
Technical audit
and survey PCU/DEPP
31
Completion of new textbooks in Mathematics
and Reading (2.1.IV) Draft Final
Actual number of schools with grant delivered
compared to the planned number (2.2.I) - 75% 75% 75%
Annual, Project
Progress Report
Technical audit
and survey
PCU/DPEE/DA
F
Number of regional teacher training institutes
built and equipped (2.3.I) 0 0 0 3
Annual, Project
Progress Report Technical audit PCU/DPEE
Number of financing agreements signed
between inspectorates and communities compared to planned number (3.1.I)
- 80% 80% 80% Annual, Project
Progress Report
Technical audit
and survey PCU/DAF
Number of communities having GMT training
compared to planned number (3.1.II) - 80% 80% 80%
Annual, Project
Progress Report
Technical audit
and survey PCU/DPEE
Primary school teachers' deployment
consistency index (R2 of the number of teachers and of students, calculated on the
basis of all public/EDIL primary schools)33
(3.2.II)
0.55 0.57 0.58 0.60
Annual, Education
Statistical
yearbook
EMIS MEPSA/DPEE
System for student learning assessment (0-4
scale34
) (3.2.I) 0 1 2 3
Annual, Project
Progress Report
Joint sector
reviews PCU/DPEE
Completion of ECD implementation plan
(3.2.III) Draft Final
Imple
mentation
started
Completion of literacy implementation plan
(3.2.IV) Draft Final
Completion of a credible school health,
nutrition and HIV/Aids implementation plan (3.2.V)
- Draft Final
Arrangements for Results Monitoring
7. Institutional arrangements. The guiding principle of the project monitoring, evaluation
and review processes is to strengthen and use the established systems of the Government. The
DPEE will take the lead on monitoring and evaluation activities for the ESP and the EFA-FTI
project, supported by the monitoring and evaluation specialists from both the PCU and the STP.
8. Data collection. MEPSA will be responsible for collecting data. The majority of the
outcome and intermediate outcome level indicators have been selected from the agreed ESP
indicators. Most of the indicators are available each year in the EMIS.
33 Conjointly, another indicator, capturing the same outcome but whose understanding is more widely shared, will
be monitored: the difference between the smallest Inspectorate PTR and the biggest Inspectorate PTR. This
difference is 55 in 2009 and an indicator for satisfactory implementation will be 50 in 2013 34
Following the Guidance Note on Education Core Indicators for IDA Countries (World Bank, July 22, 2009), this
indicator is measured on a scale from 0 to 4, using the following set of criteria: Criteria
STAGE 1
Official purpose of the assessment is to measure overall student progress toward agreed system learning goals YES NO on either one
of the two criteria
NO
Assessment is given to a representative sample or census of the target grades or age levels YES NO
Indicator Value 1 0 0
STAGE 2
Data are analyzed and results are reported to education policymakers and/or the public NO YES on any
one of the
three criteria
YES on any
two of the
three criteria
YES
Results are reported for at least one of the following student subgroups: gender, urban/rural, geographic region NO YES
The assessment exercise is repeated at least once every 5 years for the same subject area(s) and grade(s) NO YES
Value 1 2 3 4
32
9. A consolidated performance report covering the period of the previous school year will
be prepared each year. This report will focus on the extent to which objectives and outcomes
have been achieved as opposed to monitoring progress on individual activities and accounting
for inputs. The report will include assessment of progress towards meeting indicators and targets,
and will include lessons learned and recommendations as a basis for discussions during the
Government/Donors annual joint reviews. An important aspect of the reviews will be to assess
progress against the ESP indicators which includes FTI indicative framework indicators and
Project indicators. Specifically, it will be important to assess how the EFA-FTI project targets
are reached, using the logical diagnostic tool in particular to find out what are the reasons of a
potential non achievement of an outcome indicator.
10. In addition to the annual reports, PCU will be required to submit the project financial
reports to World Bank supervision mission in order to monitor the EFA-FTI project. These
reports will outline financial disbursements and commitments.
11. The Government will also carry out thematic studies in order to inform potential
necessary revisions of the activities. These may be presented and discussed during the annual
joint reviews. The pre-identified studies include: (i) Public Expenditure Tracking Survey on
textbooks and on school grants, (ii) Student learning survey, (iii) Evaluation of the reasons of
teachers’ deployment inconsistency, (iv) Evaluation of the school building program and (v)
Evaluation of the skills transfers from PCU to MEPSA.
12. A study on learning achievement (PASEC survey) will be conducted in 2009/10 and will
serve as baseline for monitoring quality of primary education
13. Capacity Development. In addition to the EPTT project that builds MEPSA capacity in
statistics, economics and teacher training, the EFA-FTI project will support specific training for
DPEE and DAF, in particular regarding procurement and financial management. Learning-by-
doing mechanisms will be applied as much as possible. PCU will gradually transfer its
responsibilities to the main departments of MEPSA. The project will also strengthen grassroots
communities’ capacities to monitor and supervise school building and school committee
management.
33
Table A3.1: EFA-FTI Indicative Framework Indicators and Targets for Togo
INDICATOR
Indicative
framework
benchmark
2009
(Baseline) 2011 2012 2013 2020
a) Resource mobilization
Public domestically-generated revenues as % of GDP 14 - 18 17.4 17.4 17.5 17.7 19.0
Public recurrent education expenditure as a % of domestic revenues 20 22.7 22.8 23.1 23.4 26.0
Public recurrent education expenditure as a % of GDP 2.8 – 3.6 3.9 4.0 4.1 4.2 4.9
Primary education35
share of total recurrent education expenditure (%) 50 40 (2007) 47 47 48 44
b) Student flows
Primary Intake rate, total 100/100 123 115 108 100 100
Girls’ intake rate 100/100 116 111 105 100 100
Boys’ intake rate 100/100 130 120 110 100 100
Primary completion rate, total 100/100 63 68 71 74 100
Girls’ completion rate 100/100 54 58 62 66 100
Boys’ completion rate 100/100 76 79 81 83 100
% of repeaters in primary school < 10 22 19 16 13 10
c) Service delivery
Pupil-teacher ratio in publicly-financed primary schools 40:1 47:1 46:1 46:1 45:1 40:1
Average annual salary of public primary school teacher 3.5 – 3.6 6.1 (2007) 5.8 5.6 5.4 5.2
Recurrent spending other than teacher salary (public school) 33 23 (2007) 28 28 28 31
Annual instructional hours 850 - 1000
Private share of enrollments % of pupils enrolled in exclusively privately-financed primary schools
10 27 27 27 26 25
Unit cost for the construction of an equipped primary classroom (000 US$) 10 21 21 21 21 21
35
Including pre-school, literacy and primary education teacher training
34
Annex 4: Detailed Project Description
Togo EFA-FTI Catalytic Fund Grant
Project Component 1: School Construction US$ 22.6 million
Context
1. In the past, the Ministry of Education and its donor partners supporting the education
sector have given limited attention to school construction, financing less than 500 classrooms per
year. Over time this leads to the creation of a substantial backlog of primary education facilities.
The free primary education policy adopted in 2008 further exacerbated the classroom backlog.
The lack of public investment in school facilities has been largely compensated by local
initiatives of communities. In the past 4 years, 73% of all classroom construction was undertaken
by local communities (financially supported by donors or NGOs).
2. The new Government’s objective to achieve EFA by 2020 requires the construction of
about 1,060 classrooms on average per year from now to 2020. The Ministry has not built itself
any primary classrooms for the last 4 years. It has maintained only limited implementation
capacity through the construction of about 70 secondary classrooms per year through a centrally-
managed process. The main challenge facing the Ministry thus is to strengthen its own capacity
to manage and supervise the implementation of this new program.
3. During the five past years, 100% of public primary school facilities were built by donor-
managed projects; one third by education projects (UNICEF, IsDB, AFD and NGOs) with some
involvement of the Ministry, and two-thirds by multi-sector CDD projects (PPMR, PURP and
PDC, respectively financed by the EU and the World Bank), with no involvement from the
Ministry of Education (see table A4.1). While the IsDB centrally managed its program, all other
programs have been using various types of implementation delegation. The AFD-funded project
outsourced contract management to an agency (AGETUR); multi-sector projects successfully
empowered local communities to implement their construction programs; and UN agencies used
different levels of community participation and empowerment.
Table A4.1: Distribution of primary school classroom built by Institutions/Projects: Project Year Cumulative 2006-2009
2006 2007 2008 2009 Total % Avg/year
Government’s building projects 0 0% 0
Government domestic resources 1 0 0 0 0
Bilateral donors building projects 233 12% 58
AFD – ANST (Delegation to Ex. Agency) 3 100 133 233 58
AFD – EPTT (Delegation to Ex. Agency and to NGO) 3
Multi-lateral donors building projects 366 18% 92
UNICEF 4 33 33 8
IsDB (Islamic Development Bank) 5 300 300 75
EU (Project Adyse with NGO Aide et Action) 3 33 33 8
NGOs building projects 165 8% 41
Plan Togo 3 54 66 27 18 165 41
Multi-sectoral projects 1,224 62% 306
World Bank- PURP 2 54 54 54 54 216 54
EU- PPMR 3 252 252 252 252 1,008 252
Total 460 538 366 624 1,988 100% 497 1 Government has only built secondary schools during 2006-2009 (Source MEPSA 2009) 2 Source PDC, 3 Source AFD, 4 Source UNICEF, 5 Source IsDB
35
4. Of the three approaches, the community approach is by far the most cost-effective for
scaling up (see table A4.2).
Table A4.2: Classroom Unit cost (per square meter –HO) according to different
approaches
Mode of delegation
Construction Type Cost saving compared to
MEPSA centralized
approach Classroom
Improved
Apatam
FCFA/m2
All taxes
included,
HO
FCFA/m2
All taxes
included,
HO
Classroom Improved
Apatam
Centralized 121,300 73,700 -5% 0%
MEPSA Government Domestic Resources 115,600 73,700 0%
IsDB 127,000 -10%
Delegation to Execution Agency 90,700 22%
AFD – ANST (Delegation to Ex. Agency) 90,700 22%
Community-based 69,033 36,350 40% 51%
UNICEF 60,000 48%
EU (Project Adyse with NGO Aide et Action) N/A
Plan Togo 70,200
World Bank- PURP N/A
World Bank - PDC 36,350 51% EU- PPMR 76,900
Average of all approaches 93,678 55,025 19% 25%
Sources: same as table 1
5. Lessons learned from these various experiences include: (i) extensive local experience
and knowledge in the implementation of community-based approaches; ii) delegation of school
construction management is more efficient than direct management by the central ministry; (iii)
community-based approaches are by far the most cost-effective, allowing for 20% to 25% of unit
cost savings per classroom compared to centrally-based approaches, mainly due to local
competition of small contractors. These lessons are consistent with the regional and international
experience36
.
6. In addition, the 2007 Country Education Status Report (summarized in the ESP)
highlights several planning weaknesses, which need to be addressed, including: (i) too long
distance to-school (7% students walk more than 3 km); (ii) inequitable treatment by the Ministry
of community-generated schools (Ecoles D’Initiative Locale, EDILs) compared to public schools
and (iii) crowded classrooms (on average 49 students per classroom; 41% classrooms
accommodate more than 50 students).
7. A survey of local firms with the capacity for school construction schools was conducted
as part of the project preparation. The survey results are summarized in table A4.3 below:
36
See S.Theunynck, School Construction Strategies for Universal Primary Education in Africa. Should
Communities Be Empowered to Build Their schools?, Africa Human Development Series, World Bank, 2009
36
Table A4.3: Number of firms either pre-qualified or with building records, by region
Lomé Maritime Kara Savanes Centrale Plateaux
Multi-
region TOTAL
MEPSA 40 40 37 40 40 40 237
Aide et Action 7 0 14 32 5 5 63
Plan 3 0 4 / 3 1 11
PDC 27 0 3 / 3 13 22 68
Total 77 40 58 72 51 59 22 379
Source: MEPSA/DPEE
Objective
8. The objectives of the present 3-year project are to: (i) apply the new construction strategy
developed by the Ministry during the preparation of the ESP with the support of all donors; and
(ii) provide resources for the construction of about 815 classrooms through the new strategy; and
(iii) reduce supply disparities.
9. The Ministry of Education is conscious that the target -- 815 classrooms in 3 years -- is
far below the identified classroom needs (1,060 per year on average for 2010-2020).
Nevertheless it deliberately decided to set a reduced quantitative objective during this first FTI-
supported project to concentrate its efforts (and maximize its chances of success) on building the
institutional capacity to implement a new strategy with the potential for further scale up during
subsequent phases. Elements of the capacity building program of the Ministry are detailed in
sub-component 3.1.
10. This limited quantitative objective is deemed realistic, because it is equivalent to 54% of
total construction implemented by other donors over the last three years.
11. Achievement of the objectives of this component will be measured by:
the number of 815 new classrooms resulting from project intervention; This objective is
expected to scale-up gradually: 163 classrooms in the first year; 285 in the second year
and 367 in the third year. Indicator for satisfactory rating: at least 80% of planned
number.
the percentage of resources effectively managed by delegated entities (Contract
Management Agencies (CMAs) and communities) according to agreed upon procedures,
expected to be over 80% of total;
the overall satisfaction of actors and beneficiaries, expected to be over 70%;
Strategy
12. The construction activities in the context of the EFA-FTI Operation constitute the launch
of the Ministry of Education new construction strategy. This strategy is two-pronged:
A new planning strategy for construction by which some planning responsibilities are
delegated to the Inspectorates. The central planning office will solely be responsible for
macro-planning, i.e. the distribution of resource allocation to the Inspectorates on the
37
basis of specific criteria and priorities determined by the Cabinet in consultation with the
Strategic Construction Council and the DPEE (Department of Planning and Evaluation).
Inspectorates will be responsible for micro-planning, i.e. determining the precise location
of the construction investments in the community, on the basis of criteria defined by the
central office in line with the Ministry’s priorities.
A new implementation strategy for construction by which the management of school
construction will be delegated by the Ministry to: (i) a Contract Management Agency
(CMA) for investment in urban schools; and (ii) concerned local communities for
investment in rural schools. The Ministry will therefore concentrate its efforts on its core
responsibilities which cannot be delegated: design, evaluation and update of the
construction strategy, definition/update of construction norms and standards, program
financing, management of the delegation and contracting system, partner’s coordination,
management of the overall monitoring and evaluation system.
13. The new implementation strategy draws on lessons learned from community-based CDD
experiences in the country. It will benefit from a wealth of existing documentation and
experience of the past EU-financed PPMR and World Bank-financed PURP as well as the
current World Bank-financed CDD project (PDC). The Ministry will also draw lessons of the
similar experience of the Benin Ministry of Education, which is experiencing a similar strategy
with the support of the Benin CDD project. The implementation strategy will be a learning-by-
doing process which will give a strong importance on the M&E system to timely inform the
Ministry of eventual difficulties for rapid corrections.
Implementation arrangements and Activities
14. In addition to be in charge of the project implementation, the Projects Coordination Unit
(PCU) will provide technical support to the MEPSA. It will be financed by the donors. Given the
current lack of capacity of the Ministry, the PCU will be responsible for: (i) the implementation
of the construction strategy; (ii) strengthening the capacity of the DPEE and the DAF to ensure
that these departments will have the capacity to take over the PCU’s responsibility at the end of
the present project. A capacity-transfer plan, with predetermined benchmarks has been prepared
and will be monitored during the project. The PCU will report to the MEPSA General Secretary.
For construction matters, the PCU (and the ESP coordinating committee – CCP) are advised by
the Construction Strategic Council (CSC) which includes construction experts from all donors
involved.
15. The PCU will have two main sub-units: (i) an Accounting and Procurement Cell (UCG),
which will be responsible for the fiduciary aspects of the construction program and gradually
transfer its responsibilities to the DAF; and (ii) a Construction Technical Unit (CTC), which will
be responsible for technical aspects, including the capacity-building program for communities,
and will gradually transfer its responsibilities to the DPEE. The CTC will comprise the following
core group of experts: a Manager of the construction program; a Communities Training
Coordinator to coordinate the capacity-building program for communities; a civil works
specialist responsible for the technical aspects of construction program; an M&E specialist to
38
coordinate the production and use of the data needed for monitoring; and five37
decentralized
GMT experts which will be regionally distributed to support Inspectorates and Communities in
the implementation of sub-projects.
16. The Department of Education Planning and Evaluation (DPEE) will have the
responsibility to: (i) implement the new planning strategy; (ii) build its own capacity to gradually
take over the responsibilities of the PCU; and (iii) supervise the work of the Regional
Directorates and Inspectorates. The first responsibility includes defining and updating
construction norms and standards; defining criteria for the macro- and micro-planning of
classroom location; executing the macro-planning exercise to determine the resource allocation
for each Inspectorate. The second responsibility regarding the department’s own capacity
development is detailed in component 3.1.
17. The Department of Finance (DAF) will have the responsibility to finance the program,
particularly to: (i) delegate management of financial resources to a CMA for the management of
urban school programs; (ii) transfer grants to rural communities (COGEP) which have signed a
Financing Agreement with their respective Inspectorate for the management of their school
construction subprojects; and (iii) manage all contracts for goods and services out of the above
mentioned contract and financing agreements.
18. The Regional Directorates (DRE) will have the responsibility to supervise the
implementation of the rural school program managed by the Inspectorates and the communities.
19. The Inspectorates will have the responsibility to: (i) execute the micro-planning exercise
to allocate resources for school construction to priority communities, on the basis of criteria
established by the DPEE; and ii) to sign and manage Financial Agreements (FA) with selected
priority rural communities in order to delegate to them the management of the school
construction subprojects. The FA includes a transfer by the DAF of a grant to cover the
estimated cost of the subproject; delegation by MEPSA of contract management according to
standard plans and technical specifications, simplified bidding documents, simplified
procurement and financial procedures, including standard formats for reporting; and the
obligation to implement social and environmental mitigations measures as requested by the
ESMF and RPF.
20. Selected Communities (represented by COGEP) will have the responsibility to: (i) sign
the FA with the Inspectorate and manage the corresponding grant transferred to them to
implement their school construction subprojects according to the terms and conditions of their
Financial Agreements with their respective Inspectorates; (ii) participate in the GMT program to
enhance their capacity to manage the subprojects, as described in sub-component 3.1; and (iii)
manage the grant received to cover the estimated cost, including the management of procurement
activities, contracts with construction contractors, furniture suppliers and technical site
supervisors, report to Inspectorates; according to simplified procedures detailed in a specific
section of the Operations Manual. The responsible entities for the community-based school
construction subproject will be the COGEP. The COGEP’ heads will sign the Financial
37
There are six Regional Directorates but one is fully urban and then it is not concerned by the GMT program that
applies only in rural areas
39
Agreement with their respective Inspectorates. In addition, communities will elect: (i) an
Implementation Technical Committee (ITC) comprising 3-4 community members with skills and
interest to provide a day-to-day support to the subproject, organize procurement and supervise
the contracts for works and technical control; and (ii) a Village Communication Committee,
comprising 2 members to ensure transparent and widespread dissemination of all relevant
information to community members. Both committees will report to the COGEP and will be
gender balanced.
21. The Operations Manual and the Project Financial and Accounting Manual include the
description of the roles and responsibilities of each actor, with respective implementation
procedures. It will be approved by the Government and the donors before effectiveness.
22. Activities financed by this component are the provision of Grants to select eligible
communities for school investment subprojects. The grants are estimated to cover the cost of
eligible expenditures such as civil works, furniture and technical site supervision.
Cost and Financing
23. Unit costs of classrooms and other educational facilities have been carefully established.
The unit cost of a classroom is estimated at $21,000 (value 2009) on the basis of actual average
unit costs obtained by the past PPMR which represented the largest school construction program
(1,000 classrooms) in the country during the 2006-2009 period. The standard floor plan uses
simple, classic cement technology, but is sufficiently robust. Nevertheless, the MEPSA has
revised its standard plan during project preparation with a view of addressing cost-effectiveness
issues, minimize unit costs as much as possible, while maintaining an expected 30-year life-span
and including disability-friendly features. The Ministry decided not to use the “apatam”
approach, a low-cost model by which the government provides a minimum structure, while
communities are invited to complete the remainder—because it results in sub-standard buildings
and is perceived as being only supplied to second class citizen. The classroom standard plans
and unit costs (one for rural areas and one for urban areas, designed for possible multi-story
expansion) were discussed and approved by all major participating donors through a decision of
the Construction Strategic Council. Because the Ministry has already adopted the free primary
education policy, it decided with the agreement of the donors that no financial contribution
would be requested from participating communities. The cost of this component is estimated at
US$ 22.6 million (US$4.4 million in year 1, US$7.8 million in year 2 and US$10.46 million in
year 3).
40
Project Component 2: Inputs for Quality US$ 14.7 million
Sub-Component 2.1: Textbooks (US$ 7.2 million)
Context
24. A large number of academic studies show a very significant impact of textbooks on
student learning. In Togo, pass rates at the national end of primary exam are 3.8 percentage
points higher when textbooks for reading are available to all students, compared to when there is
no textbooks, all other things being equal (see CSR 2007).
25. In Togo, there is a substantial lack of textbooks in classrooms for all subjects. The
textbook-student ratio is only 1:2.1 for mathematics and 1:2.0 for reading. UNICEF recently
distributed textbooks to students and teacher guides (with financing from their own resources
and Japan, Denmark and the Netherlands). However, the distribution program only covered the
first three primary grades and the quantities were far too small for closing the textbook gap (see
Table A4.4).
Table A4.4: Number of textbooks delivered by UNICEF project and remaining gap
Reading Mathematics
UNICEF project 48,000 48,000
Remaining gap 767,496 809,496
Source: UNICEF Country Office
26. Curricula are outdated and the Government does not own the copyright of the textbooks
currently used in classrooms.
Objective
27. This sub-component has two main objectives:
i) Increasing student learning by providing all public and EDIL students and teachers in
primary schools with mathematics and reading textbooks and guides
ii) Developing new textbooks in mathematics and reading based on the new competency-
based curricula and with Government-owned copyright
28. To measure the achievement of these objectives, the following indicators will be
monitored
i) Actual number of textbooks purchased and distributed compared to planned number.
Indicator for satisfactory rating: 85%
ii) Complete new textbooks and teachers’ guidebooks in Mathematics and Reading (six of
each, one per grade)
41
Strategy
29. The strategy is two-pronged:
i) for the short-term, delivery of mathematics and reading textbooks and teacher guides to
all public primary and EDIL schools to close the textbook gap
ii) Support for the development of new textbooks and teachers guides in Mathematics and
Reading based on the new competency-based curricula.
Activities and Implementation arrangements
30. This sub-component will be executed by the Department of Pre-school and Primary
Education (Direction des Enseignements Préscolaire et Primaire) of MEPSA in coordination
with the PCU and the DAF (in particular for preparing the bidding documents). The activities
will include: (i) the delivery of the books directly to schools, (ii) the preparation of the new
textbooks and their pilot testing; and (iii) the finalization of these new textbooks.
31. The number of textbooks to be delivered to each school will be calculated by the DPEE,
in collaboration with the DEPP. The number of books to be received by each school will be
advertised in local newspapers and radio and displayed publicly in schools.
32. The operator in charge of the delivery to the schools will be selected through competitive
bidding. The COGEP will accept book delivery for each school. A public expenditure tracking
survey will be implemented for assessing the effective delivery rate.
33. Textbooks are then lent to pupils by the school. Pupils keep their books during the school
year, against a minimal deposit (around 1/10 of the book cost) and returned the books at the end
of the school year.
34. Regarding the development of the new textbooks, the different activities are listed in the
Education Sector Plan and in the action plan for the preparation of the new curricula -which is
supported by the AFD-funded EPTT project.
Cost and Financing
35. The cost of this sub-component is estimated at US$7.2 million. The breakdown is as
follows: US$6.4 million in year 1, US$0.5 million in year 2 and US$0.3 million in year 3. The
EFA-FTI financing will be complemented by UNICEF’s ongoing financing.
42
Sub-Component 2.2: School grants (US$ 5.7 million)
Context
36. In primary education, salaries account for 95% of total recurrent expenditure. The share
of recurrent expenditure for spending other than teacher salaries (including non teaching staff
salaries) is only 10%, which is much lower than the African average (30%) and the EFA-FTI
Indicative benchmark (33%, see Figure A4.1). Consequently, very little resources are allocated
to school level in Togo, compared to other countries in the region.
Figure A4.1: Recurrent spending other than teachers’ salaries, in %, LYA
0
5
10
15
20
25
30
35
40
45
50
Sources: Togo: Education Sector Plan, Other countries: World Bank
37. In 2007/08, the Government abolished school fees in public pre-primary and primary
schools and started to allocate an annual FCFA 2 billion to compensate for the loss of this
substantial stream of funding. Nevertheless, out of the FCFA 2 billion, only FCFA 250 million
(equivalent to an average FCFA 330 per pupil) are allocated to school committees38
.
38. Some schools benefit comparatively more than others from resource allocations in the
form of teachers, textbooks etc. Recurrent expenditure across schools ranges from less than
FCFA 10 000 per pupil to FCFA 60 000 per pupil (see Figure A4.2).
39. Moreover, with the same level of resources per pupil and similar socio-economic context,
some schools perform much better than others. This indicates a very weak relationship between
resources and learning outcomes (see Figure A4.2).
38
530 million go for textbooks purchased at the central level, 510 million go for rehabilitation, 450 million go for
paying community teachers in EDIL, 135 million go for school head’s transports, 64 million go to Regional and
District Directorates and 61 million go for miscellaneous spending.
43
Figure A4.2: Spending per student and Exam Pass Rate, primary schools, 2007.
Source: Education Sector Plan
40. Consequently, there is a need to (i) provide more resources directly to the school level to
compensate for the fees abolition; (ii) prioritize schools located in poorer areas and that received
less resources per student compared to the average than other schools and (iii) provide incentives
for a more results-based management approach.
Objective
41. This sub-component has two main objectives:
i) Increasing resource availability at the school level for teaching material and
quality enhancement
ii) Increasing the role of communities in school management
42. The following indicator will be monitored: The number of schools that effectively
received the grants compared to the planned number of schools (satisfactory rate will be 75%)
Strategy
43. The strategy is to provide selected public/EDIL primary schools with a school grant for
quality enhancement activities. The COGEP (including community’s representatives) will decide
on the use of the school grant among eligible expenditures (see the list below).
44. The school grant depends on school size, on context/location, on resources already
available and on school performance to provide incentives - at the school level - for better
quality. As an indirect side effect, it is expected that the school grant will have an impact on
girls’ retention and repetition, because the gender ratio and repetition rate are included in the
performance indicators used for the calculation of the school grant (see ESP).
Activities and Implementation Arrangements
45. This sub-component will be executed by the DAF in the MEPSA in coordination with the
PCU and the DPEE. The Regional Directorates and District Inspectorates will supervise the use
of the grants.
0 10 20 30 40 50 60 70 80 90
100
0 10 000 20 000 30 000 40 000 50 000 60 000
Taux de ré ussite au CEPD (%)
Exam Pass Rate (in %)
Recurrent spending per student (FCFA)
44
46. The calculation of the school grant to be received by each school will be done annually
by the DPPE using the methodology agreed upon by the MEPSA and the donors, included in the
ESP. Every year, all public and EDIL primary schools will be eligible to receive a grant, based
on the criteria, i.e. all public/EDIL schools with the exception of the schools already better
endowed with resources than others and with weaker results.
47. The amount of the school grant to be received by each school will be displayed publicly
in the school, at the District Inspectorate, at the Regional Directorate and disclosed through local
media channels. The school grants will be transferred to the bank accounts opened by the
different school boards (COGEP).
48. The list of the eligible expenditure is the following:
Pedagogical material
Textbooks
Stationery
Organization of the pedagogical days (Journées pédagogiques)
School building maintenance
School furniture maintenance
First Aid medical kit
Any other spending previously agreed to by the World Bank
49. Communication activities will be implemented targeting the school level regarding (i)
the school grant calculation methodology and selection criteria; (ii) the eligible expenditures; iii)
the control mechanisms; and (iv) the sanctions in case of mis-reporting of data to obtain a
larger grant amount.
50. In addition to the regular annual financial audit, every year, a random sample of schools
will receive unannounced control visits to check the data reported by the school. A public
expenditure tracking survey is also planned to assess the percentage of grants effectively
reaching the school level.
51. The control of the use of the grants will be done the same way it is done for other public
resources reaching schools, i.e. through the regional/district offices of MEPSA (Directorates and
Inspectorates). The impact of the school grant will be evaluated before the end of the project.
Cost and Financing
52. The cost of this sub-component is estimated to be US$5.7 million with the following
breakdown: US$1.8 million in year 1, US$1.9 million in year 2 and US$2.0 million in year 3.
The EFA-FTI financing will be additional to the Government subsidies for compensating school
fee abolition (US$4.5 million per year).
45
Sub-Component 2.3: Teacher training institutes (US$ 1.8 million)
Context
53. Results from the Togo CSR 2007 indicate that teacher training helps to improve student
learning. All other things equal, national primary exam pass rates of a primary school is 3.7
percentage points higher when all teachers in a school are trained, compared to when none are
trained.
54. Nevertheless, due to resources’ constraints, Togo does not have any operational primary
teacher training institute since 2002. It is only in 2009 that the regional institute of Notse reopens
with a first promotion of 512 teacher students. Consequently, 66% of teachers in EDIL and
public primary schools have never been trained (see Table A4.5).
Table A4.5: Distribution of teachers by type of training, primary schools, 2007.
Pre-service training Public+EDIL
ENI 1 134
Professional Exam (CAP) 4 374
Others (ENIJE, CAPA) 13
Non trained 11 218
Total 16 740
% non trained 66%
Source: Education Sector Plan
55. There are discrepancies in teacher deployment across regions. We count an average of 1
teacher per 41 pupils in the Plateaux region while it is only 1 teacher per 64 pupils in the Golfe
region and 1 teacher per 56 pupils in the Savanes region of Togo (see Table A4.6).
Table A4.6: Pupil-Teacher Ratio by region, 2007.
Region PTR
Plateaux 41.0
Centrale 43.8
Kara 44.3
Maritime 47.5
Savanes 56.4
Golfe 64.2
Togo Average 46.9
Source: Education Sector Plan
Objective
56. The objective is two-pronged: (i) support the reactivation of teacher training (pre-service
and in-service); and (ii) improve the consistency of teacher deployment across regions by linking
training and deployment at the regional level (complementary to sub-component 3.2 which
supports capacity building for the same issue).
46
57. Achievement of the objective of this sub-component will be measured by the number of
regional teacher training institutes built and equipped
Strategy
58. The strategy is to build three regional teacher training institutes (in the Kara, Golfe and
Centrale region) to (i) complement the construction/rehabilitation of the three other regional
training institutes (in Lomé, Savanes and the Plateaux region) by the AFD-funded EPTT project;
and (ii) support a regionally-based teacher deployment process.
Activities and Implementation Arrangements
59. The activity of building the 3 regional teacher training institutes will follow the same
implementation arrangements as the school construction in urban areas (component 1). The
MEPSA will delegate the implementation to a Contract Management Agency.
60. Each teacher training institute will be built to be able to enroll 300 trainees.
Cost and Financing
61. The cost of this sub-component is estimated at US$1.8 million. The breakdown is as
follows: US$0.1 million in year 1, US$0.4 million in year 2 and US$1.3 million in year 3. The
EFA-FTI financing will be complemented by AFD financing, through the EPTT project, which
will (i) build the regional teacher training institutes in the three other regions and (ii) support the
preparation of teacher training curriculum.
47
Project Component 3: Institutional strengthening US$ 7.7 million
Sub-Component 3.1: Capacity-building for, and management of the school construction
program (US$ 3.1 million)
Context
62. As described in Component 1, the Ministry’s capacity to manage the large construction
program to be implemented over the next 10 years, needs strengthening. The Ministry has some
limited experience in managing the construction of secondary education facilities, through a
centralized process, however, with poor results. On the other hand, most donors have
successfully tested approaches based on the delegation of the construction activities to agencies
(AFD with AGETUR) or to communities (UN Agencies, NGOs and more over CDD projects
financed by the EU and the World Bank) which delivered altogether by far the largest programs
of school construction, about 2,000 classrooms during 2005-2009, at an average cost of 40% less
than centralized approaches.
63. The Ministry decided in 2009 to take over the leadership for the school construction
programs, and to build its capacity to do so. First, it adopted a new construction strategy as
described in component 1. Based on the learning experiences of other agencies, the Government
based its strategy on the delegation of implementation responsibilities, either to CMA in urban
settings or to communities in rural settings. Second, the Ministry decided to build the local
actors’ capacity through a learning-by-doing approach. The challenge is to achieve, in the long
term, a capacity of building 1,500 classrooms per year. Other countries’ experiences and studies
indicate that this volume can only be achieved through a community-based construction
approach. The experience of the neighboring country, Benin, where the Ministry of Education is
partnering with the PNDCC provides substantial evidence.
64. Although the Ministry has little capacity for managing school construction and direct
experience with community-based approaches, the situation is not similar for other actors. First,
other donors accumulated substantial experience through their own programs. These experiences
were shared with the Ministry during project preparation through the creation of the Construction
Strategic Council, which plays the role of strategic advisor to the Minister and his cabinet.
Second, there is a CMA, which has considerable experience and a good track record of managing
construction contracts for basic facilities. Third, several hundreds of communities which
participated in the PPMR, the PURP or are participating in the PDC received training and
acquired capacity to manage subprojects. Forth, the PPMR and the PDC have already developed
methodologies, procedures and tools (manuals, standard bidding documents and contracts),
which were extensively tested and are available to the Ministry for adaptation as needed. Fifth,
these projects, and those of NGOs already generated a large network of experienced and
available experts. Sixth, these projects provided extensive business opportunities to small-scale
local contractors familiar with the concept of community-based contracting (see table A4.3 in
this Annex for the details).
48
Objective
65. The overall objective of this sub-component is to build the capacity of actors to
successfully manage and implement 815 classrooms in three years, while simultaneously
building the capacity to further scale up. The specific sub-objectives are to: (i) build the capacity
of the central office of the MEPSA; (ii) build the capacity of its decentralized offices
(Directorates and Inspectorates); and (iii) build the capacity of participating communities.
66. To measure the achievement of these objectives, the following indicators will be used:
i) Annual number of Financing Agreements actually signed between the Inspectorates and
communities compared to planned number. Indicator for satisfactory implementation: 80%.
ii) Annual number of communities having received GMT training compared to planned
number. Indicator for satisfactory implementation: 80%.
Strategy
67. The overall strategy is to minimize the school building quantitative objective in order to
concentrate efforts on capacity-building. The specific capacity-building strategies for each actor
are as follows:
68. The strategy to build the MEPSA’s central capacity is based on two pillars:
i) The central MEPSA will be supported by the PCU as described in component 1. For
this purpose the PCU will be reinforced with experienced staff (program manager,
GMT, civil works and M&E experts). The unit will have a dual role: (i) to deliver the
construction program and (ii) to build the capacity of the DAF and DPEE. It is
expected that the PCU would be phased out at the end of the 3-year period and
subsequent programs would be managed by the MEPSA;
ii) The Ministry is fully aware of the classic risk of making the PCU perpetual due to a
lack of skills transfer. This risk is mitigated by a plan which details the transfer of
skills and responsibilities prior to implementation.
69. The strategy to build MoE decentralized offices’ capacity is to provide them with
decentralized technical assistance that will support them operating their new mandates.
70. The strategy to build communities’ capacity to implement school facility subprojects will
be based on the use of the Grassroots Management Training (GMT) method developed by the
World Bank’s Economic Development Institute (now the World Bank Institute). This training
method is specifically designed for communities with low literacy levels to allow them to
effectively acquire adequate skills for local governance, procurement, financial management and
monitoring. This method has already proven efficient in similar country-situations such as
Senegal and Benin where CDD operations, including school construction, were successful. The
GMT method is based on illustrations and role plays. GMT experts deliver sessions to members
of the COGEP, ITC and VCC (i.e. 7-8 people per community). Training modules of 2 days each
include local governance, procurement, financial management, monitoring, and maintenance. In
49
turn, trainees expose their newly acquired knowledge and skills to their community peer at in
village-meetings. Based on other countries’ experience, it is expected that 15% to 20% of the
trainees become local experts with proficient expertise and gradually replace the external GMT
trainers.
Activities and Implementation Arrangements
71. The overall responsibility to deliver the capacity-building program for school
construction will lie with the PCU. The selection of the PCU staff will be a condition for the
grant effectiveness. The General Secretary will be responsible for reinforcing the DAF and
DPEE with additional civil servants with adequate academic qualifications.
72. The GMT program to build communities’ capacity will be the responsibility of the GMT
specialist in the PCU, to be selected among experts with a track record in GMT coordination.
Training manuals will be adapted from existing manuals used by the PNDCC in Benin through a
partnership agreement between the two projects. The adaptation will use to the maximum extent
possible existing training materials developed by the Togolese PDC. Experts to deliver the GMT
program to communities will be recruited by the PCU amongst experts with a solid track record
in community-based approaches. Contracts will be based on a lump-sum amount and paid on the
basis of output delivery.
73. The monitoring system for this component aims to provide to managers timely
information on the actual implementation of the program. It will be based on a chain of
information produced by the various implementing actors, channeled to the PCU which will
gather process and analyze them, and timely disseminate relevant results to decision makers. The
reporting formats to be used by all actors are detailed in the Operations.
74. The evaluation system of the component aims to timely identify potential or actual risks
of mis- or substandard-management, as well as highlighting good and efficient practices. It will
provide a strong basis for regular adjustment of the system to improve efficiency. It will be
composed of the three following pillars:
An annual technical audit to review the progress of the school construction program and
provide information on the efficiency of the overall construction activities. The audit
report will review the cost efficiency of the construction through a unit costs review and
will provide recommendations for areas of improvement;
An assessment of the beneficiaries’ appreciation; and
An ex-post procurement review by the World Bank of the procurement activities.
75. The communication system aims to guarantee the transparency of the flow of information
to each individual actor from the decision-makers to the ultimate beneficiary, particularly as
regards financial data. It will not only reinforce the awareness of each actor, but also aims to
contribute to reduce the risk of mis-management and eventual corruption.
Simple information regarding the new construction strategy, eligible criteria for funding,
procedures to access and utilize funds will be broadly disseminated to parents and
communities through flyers given to students by teachers.
50
Information provided by both monitoring and information systems will be disseminated
upward to policy-makers, horizontally to managers and directors, and downward to local
governments, communities, and beneficiaries, through a range of specific formats adapted
to the targeted audience. For instance, specific reports for high level staff, publication in
newspapers to inform public opinion, and rural radios to inform communities.
Information regarding the flow of funds from the center to communities and the use of
funds by communities, including procurement and financial management will be broadly
disseminated by VCCs and posted in public places accessible to community members.
76. Activities will include:
Goods: Office equipment for the PCU and DPEE staff as needed to enable them to
perform their tasks and vehicles for supervision of the program in the field.
Technical Assistance to: (i) prepare and deliver the GMT program to enhance
communities’ capacity, including the production of GMT guides; (ii) provide local
technical support to communities to manage their subprojects; (iii) execute technical
audits and beneficiary assessments; (iv) broadcast information through rural radio station;
(v) publish information in newspapers; (vi) update the Operations manual on the basis of
technical audits and assessments; (vii) update standard plans and technical specifications
as needed; (viii) duplicate/print documents such as flyers, operations manuals, reports; (ix)
develop/update the monitoring and reporting system including computerized tools; and (x)
evaluate program implementation, including the GMT part of it. Training will take
different forms such as: (i) community meetings for GMT sessions, (ii) Inspectors,
Directors and other MEPSA staff meetings to enhance capacity, share experience and self-
assess performance; (iii) scholarships for MEPSA staff to develop specific skills in
relation with the construction program; (iv) study tours to learn from similar experiences
of other countries; and (v) video conferences with international experts and teams through
Distance Learning Centers for staff of the MEPSA.
Operational expenses for: (i) logistics, transport and per diem for supervision activities by
the different administrative levels of the system (PCU, Directorates, Inspectorates).
Cost and Financing
77. The cost of this sub-component is estimated to be US$3.1 million (US$1. 2 million in
year 1, US$0.9 million in year 2 and US$1.0 million in year 3). Financial support provided to the
Inspectorates by the AFD-funded EPTT project will also benefit to the present project.
51
Sub-Component 3.2: Capacity building of the MEPSA for ESP implementation (US$ 4.6
million)
Context
78. In addition to capacity building activities for school construction, there are other areas in
which the capacity of the MEPSA needs to be strengthened to ensure successful implementation
of the ESP. An assessment of the capacity gaps and discussions with the other donors regarding
their capacity building activities helped to identify key areas for capacity building activities. It
includes (i) the establishment of a system for student learning assessment; (ii) capacity building
for improving consistency of teacher deployment across schools (in line with the sub-component
2.3 which will build regional teacher training institutes); (iii) support to the preparation of
credible implementation plans for pre-school and literacy development; and (iv) support to the
preparation of a sound implementation plan for school health, nutrition and HIV/Aids.
79. Capacity building and skills transfer implementation plan. Thanks to the support of
UNICEF to MEPSA, a time-bound capacity building implementation plan (using the “EFA-FTI
Guidelines for Capacity Building Assessment” and other reference guides39
) has been prepared
and will be implemented and monitored during the Project. It includes the progressive skills
transfer from the PCU to the respective MEPSA departments in key areas such as procurement,
financial management and civil works management (see also component 3.1).
80. Student learning assessment system. There is a clear need for setting up a system to
monitor annual progress of student learning with a cross-country comparative perspective. The
last learning assessment using standardized tests is outdated (PASEC in 2000/01). The available
proxy indicator (literacy retention for people who completed primary school) is not the most
appropriate indicator for measuring education quality. 19% of individuals which completed
primary school are not life-long literate (these figures are calculated from the MICS 2000 and
included in the ESP). Literacy retention in Togo is thus above the African average (29%), but is
nevertheless low compared to what is expected from a good quality primary education system (a
good quality system would lead to almost 100% of sustainable literacy among individuals having
completed primary school). The recent school fee abolition succeeded in enrolling pupils that
would have not attended school otherwise. Similar to the experiences in other countries (for
instance Malawi), this sudden increase in the quantity of pupils may have adverse effects on
quality (measured on average), because (i) there is a risk of a deterioration of average school
conditions (class size etc.); and (ii) the “new” pupils in schools are mainly from the most
disadvantaged groups (which often means a less academically supportive environment at home)
and this may skew downwards the average level of student learning.
81. Consistency in teacher deployment. There is also a clear need for improving the system
of teacher’s deployment across schools. Schools with the same number of students can have very
different number of teachers. As an example, the number of teachers in schools with 300
students, varies from 2 (average class size of 150 students) to 14 (average class size of 21
students). The lack of consistency in teacher deployment has then dramatic impacts on schooling
conditions’ equity. At the inspectorate level; the inspectorate pupil-teacher ratios (PTR) range
39
See E. Orbach, Assessing organizational capacity tool, World Bank
52
from 1:34 in Amou Nord up to 1:89 in Lomé Aéroport. Togo is one of the lowest achievers in
terms of teacher deployment consistency. With a consistency indicator40
of 55%, Togo is far
below the African average (71%, see Figure A4.3). The reasons of this weak teacher
management are so not clear even if there are likely to be a mix of technical and political
reasons41
. There is a need for a detailed analysis of the factors and for the identification of the
remedial actions. The building of regional teacher training institutes with regional-based
deployment (sub component 2.3) could help, in addition to the activities of this sub-component.
Figure A4.3: Consistency of teacher deployment index, 2008/09 or LYA
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Gui
nea
Moz
Nam
ibia
Leso
tho
Nig
er
Sene
gal
G.B
issa
u
Zam
bia
Rwan
da BF
Mau
rita
CAR
Gab
on
Mal
i
Mad
a
Ave
rage
Gha
na
Ethi
o SL
C. Iv
oire
Chad
Uga
nda
Cong
o
Beni
n
DRC
Mal
awi
Togo
Cam
Buru
ndi
Libe
ria
Sources: Togo: DPEE/MEPSA, Other countries: World Bank
82. Early Childhood Development (ECD) and Literacy. There is a lack of sound action
plans for ECD and literacy development. The two sub-sectors were analyzed and key innovative
and financially sustainable strategic directions were identified, based on the scenario estimated
with the help of a sector-wide financial simulation model42
. These include community
empowerment and capacity building. Nevertheless, (i) detailed implementation plans are not yet
available (in particular partnership arrangements with communities, NGOs and the Ministry of
Social Affairs); (ii) the new curricula and related teaching materials based on the new strategy
have neither been finalized nor tested; and (iii) no consolidated information system exists for
literacy programs operated by different stakeholders; and no learning assessment system for
participants in ECD and Literacy programs exists.
83. School health, nutrition and HIV/AIDS implementation plan. The ability of the sector
in Togo to deliver comprehensive school health services is hampered by weak capacity at
40
The consistency indicator usually used is the coefficient of determination (R2) between the numbers of teachers
and the numbers of students, calculated on all public/EDIL schools 41
A usual reason in other countries for such inconsistency is the fact that most teachers prefer to be deployed in
urban areas and find a way to stay in those areas or to be mutated to those areas. Nevertheless, in the case of Togo, it
seems not to be the only explanation as there are urban areas with higher PTR than average. It may be explained by
the bigger lack of classrooms in urban areas that refrain the MEPSA to deploy new teachers there (without double
shift mode, there is the need for one classroom per teacher). The first year of the project will evaluate scientifically
this hypothesis, find out the other causes and recommend remedial actions. 42
See “Pour la definition d’un programme national de développement des activités en faveur de la petite enfance au
Togo” and “Pour la definition d’un programme national de développement de l’alphabétisation au Togo” working
papers
53
central, regional and district levels43
. In Togo, poor health, malnutrition and HIV&AIDS impacts
the timing of enrollment, the attendance and academic performance of children. Many children
in Togo are infected with several different types of worms, among which are geohelminths and
the schistosomes44
. HIV&AIDS has a considerable impact on the functioning of the education
sector, affecting directly or indirectly children and teachers45
. In Togo, it is estimated that there
are approximately 68,000 AIDS orphans46
. Increased school dropout and absenteeism can be
observed in Togo when one or both parents are sick or dead. As for the teachers, with an HIV
prevalence rate of 3.2%47
, it is estimated that about 1,400 teachers (at all levels of the education
system) are infected with HIV/AIDS48
. The Government of Togo is committed to integrate
concrete interventions on health, nutrition and HIV/AIDS in the education sector activities, but is
impeded by the lack of a credible action plan.
Objective
84. The objective is to strengthen MEPSA capacities for a successful implementation of the
ESP and related projects.
85. To measure the achievement of this objective, the following indicators will be monitored
i) A time-bound implementation plan to support capacity building in the MEPSA
and skills transfer from the Project Coordination Unit (PCU)49
is approved by the
General Secretary and at least 75 percent of activities for each year are
successfully implemented, as evaluated by the joint donor supervision mission.
ii) A system for learning assessment is set up and operational (IDA Core Indicator).
On the 0-4 scale, the system reaches 3 in 2013 50
43
See Aide mémoire of the mission of Andy Tembon in 2009 44
www.dewormtheworld.org/pdf/togo.pdf (09/25/09) 45
Institute International de planification de l’Education (2006). L’impact de VIH/SIDA sur le système éducatif au
Togo. (Tableau VIII – Décès du personnel enseignant entre 2000 – 2004, page 41). 46
WHO/UNAIDS/UNICEF, (2008). Epidemiological Fact Sheet on HIV and AIDS. Core data on epidemiology and
response. TOGO. (WHO/Second Generation Surveillance on HIV/AIDS, Contract No. SANTE/2004/089-735). 47
WHO/UNAIDS/UNICEF, (2008). Epidemiological Fact Sheet on HIV and AIDS. Core data on epidemiology and
response. TOGO. (WHO/Second Generation Surveillance on HIV/AIDS, Contract No. SANTE/2004/089-735). 48
Though it is difficult to predict the evolution of this situation, available empirical information suggest that each
year about 140 teachers die from AIDS and the full time equivalent of the same number is lost in terms of teachers’
absenteeism due to their illness 49
The capacity building plan is being prepared using the “EFA-FTI Guidelines for Capacity Building Assessment”. 50
Following the Guidance Note on Education Core Indicators for IDA Countries (World Bank, July 22, 2009), this
indicator is measured on a scale from 0 to 4, using the following set of criteria: Criteria
STAGE 1
Official purpose of the assessment is to measure overall student progress toward agreed system learning goals YES NO on either one
of the two criteria
NO
Assessment is given to a representative sample or census of the target grades or age levels YES NO
Indicator Value 1 0 0
STAGE 2
Data are analyzed and results are reported to education policymakers and/or the public NO YES on any
one of the
three criteria
YES on any
two of the
three criteria
YES
Results are reported for at least one of the following student subgroups: gender, urban/rural, geographic region NO YES
The assessment exercise is repeated at least once every 5 years for the same subject area(s) and grade(s) NO YES
Value 1 2 3 4
54
iii) The teacher deployment consistency index (R2 of the number of teachers and of
students, calculated on the basis of all public/EDIL primary schools). Indicator for
satisfactory implementation will be 60% in 2013 (to be compared to 55% in
2009)51
iv) An implementation plan on ECD in line with the key strategies of the ESP is
completed and approved by the Government and the local donors.
v) An implementation plan on literacy in line with the key strategies of the ESP is
completed and approved by the Government and the local donors.
vi) An implementation plan on School health, Nutrition and HIV/AIDS in line with
the key strategies of the ESP is completed and approved by the Government and
the local donors.
Strategy
86. The strategy is to enhance the capacity of the Ministry of Education via the
implementation of the time-bound capacity building and skills transfer plan.
Activities and Implementation Arrangements
87. This sub-component will be executed by the MEPSA General Secretariat, in coordination
with the PCU of MEPSA, and with the relevant MEPSA Departments (DPEE for the learning
assessment, DRH for teacher’ deployment, DEPP for ECD, Direction de l’Alphabétisation et de
l’Education Non Formelle (DAENF) for literacy).
88. The activities will include: (i) provision of technical expertise (short-term consultants and
resident technical assistance); (ii) preparation of thematic studies and surveys; (iii) technical
workshops; (iv) sharing of experience with other countries through study tours; and (v) purchase
of materials and office supplies.
89. The learning assessment system will be built upon the PASEC survey conducted during
the 2009/10 school year. The external international PASEC team will strengthen the national
Ministry team’s capacity for designing, implementing and analyzing a student learning
assessment. The National team will then replicate the assessment (without the PASEC team) in
the following school years.
Cost and Financing
90. The cost of this sub-component is estimated to be US$ 4.6 million broken down as
follows: US$2.1 million in year 1, US$1.1 million in year 2 and US$1.4 million in year 3. The
present project will also benefit from technical assistance provided to the Ministry team through
the AFD-funded EPTT project, and capacity building activities funded by UNICEF and NGOs.
51
Conjointly, another indicator, capturing the same outcome but whose understanding is more widely shared, will
be monitored: the difference between the smallest Inspectorate PTR and the biggest Inspectorate PTR. This
difference is 55 in 2009 and an indicator for satisfactory implementation will be 50 in 2013
55
Annex 5: Project Costs and proposed financing of the ESP over the CF grant period
Togo EFA-FTI Catalytic Fund Grant
Table A5.1: Financing of the ESP by level of schooling and source of funding (2010-2013
MTEF Summary), in k US$
Recurrent Capital Rec+ Capital
Level of schooling
Gov Gov EFA-FTI CF AFD AFD/ AeA
UNICEF Plan Togo
BID PDC IDA
DANIDA Total
Pre-primary 5,971 807 699 72 7,550
Primary 211,119 7,359 39,044 7,841 0 4,817 4,703 4,105 2,100 254 281,342
Literacy 1,235 0 473 66 79 1,853
Secondary 135,823 8,522 144,345
TVET 33,945 90 34,035
Higher Education
96,664 3,629 100,293
Sector Wide 493 4,784 6,260 304 0 455 63 0 97 12,456
Total 484,757 20,901 45,000 14,100 304 4,817 5,297 4,167 2,100 430 581,874
Table A5.2: Distribution of spending of the EFA-FTI operation by sub-component and
year, in k US$
Sub component 2011 2012 2013 Total
School Building (1) 4,384 7,844 10,357 22,585
Textbooks (2.1) 6,392 524 253 7,169
School Grants (2.2) 1,829 1,928 1,981 5,738
Teacher Training Institutes (2.3) 56 438 1,310 1,804
Capacity-building for, and management of the school building program (3.1) 1,182 926 1,008 3,116
Capacity-building of MEPSA for ESP implementation (3.2) 1,185 579 896 2,661
Management and program coordination (3.2) 946 484 496 1,927
Total 15,973 12,723 16,303 45,000
Table A5.3: Distribution of spending of the EFA-FTI operation by type of spending and
year, in k US$
2011 2012 2013 Total
Equipment and Furniture 1,189 901 1,622 3,712
Studies and surveys (incl. for civil works) 261 537 595 1,394
Training 575 456 489 1,520
Textbooks and other teaching material 6,392 41 514 6,947
Expertise, consultants fees 1,242 1,366 851 3,459
School Grants 1,794 1,844 1,969 5,608
Civil works 3,742 6,951 9,451 20,144
Other 778 627 812 2,217
Total 15,973 12,723 16,303 45,000
56
Annex 6: Institutional Arrangements
Togo EFA-FTI Catalytic Fund Grant
1. Guiding Principles. The ESP is a sector-wide program that includes all the sub-sectors
from early childhood to higher education through primary, secondary, technical and vocational
education and literacy. External support is embodied in the ESP framework. External support is
so far projects-based but the goal is to go towards sector budget support, once Government
capacities will be enhanced enough. One other key issue is the move towards “decentralization”.
The success of this move depends also on strengthening the capacity, in particular in the regions,
local authorities and communities as well as on the establishment of accountability procedures at
all levels.
2. Construction Strategic Council (CSC). Due to the high volume of school buildings that
is planned and the need for a better Government/Donors harmonization, a Construction Strategic
Council has been set up. It includes the MEPSA and all donors and NGOs involved in school
building activities in Togo. It is chaired by the MEPSA General Secretary. The CSC first agreed
on key issues regarding the new school building strategy and will now have the role to advise the
Construction Technical Unit (CTC) of the Projects Coordination Unit (PCU) in all matter related
to school construction.
3. Project implementation arrangement. The project implementation unit set up in
MEPSA for the EPTT project already follows the IDA procedures. It will be strengthened to
become a Projects Coordination Unit (PCU). Under the supervision of the MEPSA General
Secretary, the PCU will (i) implement all the activities of the two projects (EPTT and EFA-FTI),
(ii) liaise with the ESP coordination structures and the MEPSA departments and (iii) transfer
skills to MEPSA departments during the projects implementation. The PCU will report to the
MEPSA General Secretary.
4. In addition to the EPTT coordinator and the EFA-FTI coordinator, the PCU will include
two sub-units: (i) an Accounting and Procurement Unit (Unité Comptable et de Gestion - UCG)
which will be responsible of the fiduciary and procurement aspects of the projects (using
procedures acceptable to the World Bank) and (ii) a Construction Technical Unit (CTC) which
will be responsible for the school building component regarding technical aspects, and capacity-
building of communities.
5. The UCG will comprise the following core group of experts: two procurement officers
(one already recruited by the EPTT project), a financial comptroller (already recruited by the
EPTT project) and one financial management specialist and one accountant (to be recruited with
qualifications and experience satisfactory to the World Bank).
6. The CTC is advised by the Construction Strategic Council (already in place) and will
comprise the following core group of experts: a Construction Program Manager, a civil works
specialist which will be responsible for the technical aspects of the construction program, a M&E
specialist which will coordinate the production and use of the flow of data needed to monitor the
projects, a Communities Training Coordinator specialist to coordinate the capacity-building
program for communities and five decentralized Grassroots Management Training (GMT)
57
experts which will be regionally distributed to support Regional Directorates (DRE) and
coordinate supervision and capacity-building regional sub-programs. The Construction Program
Manager will coordinate with the Procurement Officer as well as with the Financial Management
Specialist to ensure all activities are conducted according to procedures acceptable to the World
Bank.
7. Given the current lack of capacity of the MEPSA, the PCU will have the responsibility to
build the capacity of the key MEPSA departments (in particular the Direction of Finance –DAF,
and the Direction of Education Planning and Evaluation –DPEE) through specific training and
learning-by-doing. The UCG will gradually transfer its responsibilities to the DAF and the CTC
will gradually transfer its responsibilities to the DPEE.
8. The organization chart below indicates the functional connections that exist between the
different units and actors involved.
58
ESP High Level Steering Commitee (CSE)
ESP Coordinating Committee (CCP) with a
Permanent Technical Secretariat (STP)
Accounting and
Procurement
Unit (UCG)
DAF
DPEE
Communautés
Support and Capacity Building
Decision and Supervision
Contract Agreement
Two
Procurement
officers
Financial
Analyst +
Two
accountants
Budget and
Accounting
Material and
Equipment
IT
Construction
Technical Unit
(CTC)
Coordinator
Monitoring and
Evaluation
Expert
Civil Works
Expert
Grassroot
Management
Training Expert
Projects Coordination Unit (PCU)
Private Sector
Contractor
Schools
Construction
Use of school grants
Textbooks reception
MEPSA General Secretary
DPEE
Statistics and
School
Mapping
Equipment and
School
Buildings
Evaluation and
Surveys
Communities
Regional Directorates (DRE)
School Building
Division
Inspectorates
COGEP
Village Community
Association
Inspector
Director PCU Decentralized Staff
Reg. Coordinators
Construction Strategic
Council (CSC, includes
donors)
Trainers/Moderators
9. Regarding particularly the school construction, in order to implement its new strategy and
to pave the way for scaling up to the other levels of education (pre-school and secondary), the
MEPSA will develop the capacities of the DPEE as follows:
Capacity to develop and implement a monitoring and evaluation mechanism;
Capacity to develop and implement a training device at grassroots level;
Capacity to develop and implement a communication mechanism.
10. The capacities of the DAF will be developed in the following areas:
Management of devolved consultant contracts;
Management and transfer of funds to the communities;
General management of the program’s budget, involving numerous actors and decision-
makers.
11. To achieve this capacity building, the PCU will provide support through training and ad-
hoc actions and will be responsible for (i) the progressive transfer of responsibilities from
members of the PCU to their counterparts and (ii) training and recycling DREs and Inspectorates
for their missions. PCU experts will work closely with at least one DPEE/DAF/DRE counterpart
appointed as representative to the program, by the MEPSA. In due course, all the missions and
responsibilities covered by the Project Unit will be taken over by the DPEE and the DAF.
12. Community level. The project is designed to strengthen grassroots communities’
responsibilities in order to improve accountability and efficiency in service delivery52
. In
particular, the communities, through school committees (COGEP) will be involved in the
implementation and management of the classroom buildings and of the school grants sub-
component. The COGEP include parents, village representatives and teachers of the school. In
rural areas, school building procurement will be carried out according to simplified procedures that
are already used in the World Bank Community Development Project. The COGEP will be
supervised by regional Directorates (DRE) with the support of the decentralized PCU staff. Prior
to the grant disbursement to the COGEP, they will receive systematically the required basic
training on the Simplified Guidelines for Procurement and Disbursement for Community-Based
Investments. The procedures are detailed in the Operations Manual and in the Project Financial
and Accounting Manual approved by the World Bank.
13. The management training and support mechanism will provide the communities with
initial capacity building and the necessary support during implementation to enable them acquire
full capacity to manage the construction work through hands-on experience. Capacity development
will be required at grassroots level for the following aspects: (i) procurement, (ii) financial
management, (iii) communication and transparency, (iv) monitoring and control, and (v)
maintenance of school buildings and equipment.
14. The follow-up mechanism is set up to ensure that the activities are correctly performed,
according to the procedures already established at central level by the MEPSA. It is a way of
checking that the communities are indeed managing the construction projects in compliance with
52
See World Development Report 2004, Making Services Work for Poor People; World Bank, September 2003
60
the set procedures, time schedules and norms. It involves verification and acceptance procedures as
well as the transmittal of information and reports. These concerns all actors involved in school
construction, i.e. the different administrative levels of the MEPSA and the communities.
Monitoring and control will be carried out in succession as follows:
The communities will be responsible for following up on the activities of the sub-
contractors (they sign a contract to this effect with a maître d’œuvre who certifies the
works carried out)
The Inspections will be responsible for following up on the activities of the communities,
and on training and support activities
The DREs will be responsible for checking the application of norms and procedures, the
proper use of standard documents, and the effectiveness of training and support activities at
community level.
The DPEE will be responsible for checking that the accepted procedures are respected at all
levels (DRE/Inspections/Communities) at each stage of the strategy. It will benefit from the
assistance of the Construction Technical Unit of the PCU.
The ESP coordination bodies and the Construction Strategic Consul will be responsible for
(i) checking the effectiveness and efficiency of the implementation of the program as a
whole, (ii) ensuring the timely and periodical setting up of technical and financial audits,
post-procurement reviews and the beneficiary satisfaction survey, and (iii) proposing, as
necessary, any adjustments and/or change of direction.
15. The communication and transparency mechanism will ensure that all actors are
accountable for managing the funds under their responsibility vis-à-vis all the other stakeholders,
the communities and public opinion. Transparency mechanisms will be set up at all levels.
Transparency consists in all essential data on program operations being known by all stakeholders,
including the general public. This device will ensure proper use of the funds and will constitute a
means of sanction in case of failure to reach the set goals.
16. Project monitoring and supervision. The supervision of the project will be facilitated by
the recruitment of an Extended Term Consultant based in Lomé who will support project
implementation and supervision under the management of the World Bank Task Team Leader and
in close collaboration with the Country Manager.
61
Annex 7: Financial Management and Disbursement Arrangements
Togo EFA-FTI Catalytic Fund Grant
Summary of the Financial Management Assessment
1. A World Bank mission has been conducted in Lomé on July 20 to 31, 2009 to assess the
financial management capacity of the Ministry of Primary and Secondary Education and Literacy
(MEPSA), and in particular of the unit established by the Government to handle the fiduciary
management aspects of donors funded projects in the Education sector. This unit, currently named
UCG (Unité Comptable et de Gestion), is supported by the EPTT project (funded by AFD) and
will be strengthened to become the Project Coordination Unit (PCU) of the MEPSA. The
assessment was based on field visit, on an FM Questionnaire and on various discussions with staff
of the MEPSA and others donors involved in the education sector.
2. The objective of the assessment was to determine whether the UCG, had acceptable
financial management capacity. The assessment was carried out in accordance with the OP/BP
10.02 and the Guidelines for Assessment of Financial Management Arrangements in World Bank
Financed Projects issued by the Financial Management sector board on October 15, 2003. It
includes an assessment of the budgeting, accounting, reporting, auditing, and internal controls
systems. A Unit’s arrangements are acceptable if they are capable of recording accurately all
transactions and balances, supporting the preparation of regular and reliable financial statements,
safeguarding the Project’s assets, and are subject to auditing arrangements acceptable to the World
Bank. These arrangements should be in place when project implementation starts and be
maintained as such during project implementation.
3. The conclusion of the financial management assessment was that financial management
arrangements for the Project needed to be improved in order to satisfy the World Bank’s minimum
requirements under OP/BP10.02, after which they will be adequate to provide, with reasonable
assurance, accurate and timely information on the status of the Project as required by the World
Bank. The main areas of improvement include: (i) the development of a Project Financial and
Accounting Manual, (ii) the recruitment of one FM specialist and one accountant with
qualifications and experience satisfactory to the World Bank, (iii) the development and
implementation of an accounting software and (iv) the recruitment of a financial external auditor
with qualifications and experience satisfactory to the World Bank. As a result of the weaknesses
identified, the financial management risk has been assessed as substantial after the implementation
of the mitigation measures above.
Summary project description
4. The Project Development Objective (PDO) is to increase coverage of and retention in basic
education, support improvements in the quality of teaching and strengthen institutional and
community capacity in implementation and management.
Country assessment
5. The country environment is characterized by weak governance and transparency systems at
all levels. Other main issues include: (i) a public expenditure management that has suffered from a
62
distorted budget cycle, and from problems in budget execution; (ii) a control environment with an
internal audit system that is not fully effective and an external public audit body that is not
established; (iii) delays in executing public expenditures due to lack of accountability and capacity;
and (iv) a Treasury management system that is inadequate and not transparent. However following
the completion of the PEMFAR in 2006 there have been some improvements. In particular, the
December 2008 ERGG mission noticed that, significant progresses have been made in: (i) budget
preparation, (ii) budget credibility, and (iii) budget implementation and control. Weakness remains
in budget monitoring and reporting and external control oversight.
Risk analysis
6. The FM risk assessment is summarized in the Table A7.1 below:
Table A7.1: Summary of FM risk assessment
Risk Risk
Rating
Risk Mitigation Measure Conditionality Residual
Risk
Rating
Inherent Risks: S M
Country: Slow pace of public financial
management reforms
H As per ERGG mission (Economic
Recovery and Governance Grant) set up in
December 2008, progress has been made
on fiscal and accounting reforms.
Weakness remains in budget monitoring,
reporting and external control oversight.
None S
Entity Level
The Ministry of Education has
no real capacity in managing
World Bank funded operations.
H
One FM specialist and one accountant with
experience and qualifications satisfactory
to the World Bank will be recruited to
reinforce the UCG.
The project includes also technical
assistance which will help to strengthen
capacities in central departments of the
ministry and at several other
decentralization levels.
Some additional
staff including
one FM
specialist and
one accountant
will be recruited.
M
Program level
i. The program involves several
donors (AFD): Risk of
confusion of funds and delays
in recording by using the same
FM unit for different financing
received from the donor
partners of the sector
ii. Insufficient knowledge and
experience with IDA. FM
procedures may delay the
project implementation
iii. Governance and anti
corruption (GAC) aspects: Risk
S
S
H
Separate designated accounts will be
opened for each donor and the operational
manual will detail the reporting
requirements. The FM specialist of the
PCU, will coordinate and supervise the job
of the other accountant.
PCU/MEPSA staff and other stakeholders
to be trained on World Bank policies and
procedures. IDA supervision to help
identity and address weaknesses. Amendment of the external financial
auditor ToR to include specific
International Standards of Auditing (ISA)
Project manuals
to be available
prior the
effectiveness
M
M
M
63
of corruption and bad
governance that could not
allow to meet the key goals of
the project especially at
decentralization level
on fraud and corruption, realization of a
technical audit. As for management of
school grant, transparency measures must
be taken including a mandatory disclosure
in each school of COGEP Annual Budget
and the executing report
Control Risks: H S
Budgeting Budget preparation process
may be delayed as different
stakeholders are involved in the
project implementation. Budget
may be based on unrealistic
procurement plans and costing
S The FM analyst of the PCU will provide
support in preparing realistic budget
consistent with their disbursement plans.
None M
Accounting The accounting system is being
put in place by other donor;
delay in keeping reliable
accounting records and issuing
reliable financial statements
might occur.
H A specific computerized accounting
system will be acquired. Training will be
provided to all project staff.
Implementation
of an appropriate
computerized
accounting
system prior the
effectiveness
S
Internal Audit i. National internal control
entity recently established does
not have adequate capacity to
cover project activities. The
PCU does not have its own
internal audit unit.
ii. The FM staff of COGEP are
not qualified enough and then
the FM system regarding the
monitoring of school grant and
school building at
decentralization level would
not be reliable
S
H
i. The Project Financial and Accounting
Manual will outline approval and
authorization procedures with clear
segregation of duties. Civil work experts
will be involved at each level in the
supervision of school building activities
and they will provide clearance before any
payment to executing agencies or
communities.
Internal control environment will be
reviewed during FM supervision mission.
ii. Training will be provided to the FM
staff of communities such as COGEP
under the project. In addition, the
accountants of decentralized level of the
MEPSA will make ex-post reviews of all
expenditures committed locally by the
communities under school building
activities or school grant operations. They
will also review the adequacy of FM
arrangements implemented by
Communities or other executing agencies
involved in the project. Relevant work
tools will be provided to them by the
Project Financial and Accounting Manual
and training will be provided to them.
Project Financial
and Accounting
Manual to be
available prior
the effectiveness
M
S
External Audit
Delays in the submission of the
audit report.
Unqualified audit firm may be
recruited.
M Audit firm to be recruited in line with
World Bank’s guidelines including
reviewing the TOR to ensure quality
audits. This will be performed by using the
ToR will be
finalized at the
negotiation.
Appointment of
L
64
recent World Bank assessment of the audit
firm in Togo. the auditor 4
months after
effectiveness
Funds Flow
i. Delays in the replenishment
due to challenges to generate
and manage documentation of
expenditure in a timely manner.
ii. Funds may be diverted or
used for non project eligible
purposes especially at
decentralization level
H
H
PCU will open a Designated account in a
reputable and stable commercial bank in
Togo. To mitigate any risk related to the
report-based disbursement, the World
Bank FM Unit would provide appropriate
training to the key stakeholders involved in
the program prior the effectiveness and the
task force will help resolve Funds flow
issues during the program implementation.
Separate accounts will be opened by all
executing agencies to be involved in the
project. The capacity building activities
planned, the appointment of external
auditor and of a technical auditor will
contribute to avoid having ineligible
expenditures.
None
Amendment of
current
Ministerial
decree related to
COGEP
including
authorization of
opening account
in commercial
bank
S
M
Reporting Delay and difficulties in the
preparation of acceptable IFRs S
The use of report-based disbursement
compounds the challenge to set up reliable
and acceptable IFRs that meets the World
Bank’s requirement. Thus ,the appropriate
formats for Interim Financial Reports
would be designed and included as
annexes to the manual of procedures: Two
kinds of reports will be defined, one for the
use of communities such COGEP, and the
other to help the PCU to report to IDA.
This would be discussed and agreed by the
end of the negotiations. Training will be
also provided to the project accounts staff.
Agreement on
IFR formats and
contents at
negotiations
M
Overall Risk H S Risk Rating - H: High, S: Substantial, M: Moderate, L: Low
7. Strengths. Even if it was put in place recently, the PCU is already managing AFD
financing with FM procedures similar to IDA procedures. Since the PCU is destined to enhance
capacity of operational department staff of the ministry, some homologues of PCU staff will be
designated and they could help to reduce operations delays when they start getting strong.
65
8. Weaknesses. Following are the weaknesses identified and the proposed actions plan:
Significant weaknesses Activity/Action Responsibility Target Completion Accounting
1. An appropriate computerized
accounting system is not yet in
place
2. Weakness of Account staff of the
PCU ( one accountant devoted now
to AFD project)
No Objection on TOR of
computerized accounting
system to be acquired by other
donor and development of this
system.
Recruitment of a FM specialist
and one accountant with TOR
acceptable to the World Bank
AFD/ MEPSA
MEPSA
Before Negotiations
Four months after
effectiveness
External Audit
3. The Supreme Audit Institution is
weak and has never audited the
Ministry
Prepare TOR for the external
auditor that is satisfactory to
IDA
Recruitment of external
independent auditor under
TORs acceptable to IDA
MEPSA
MEPSA
During appraisal
and agreed on at
Negotiations
Four months after
effectiveness
Internal control
4. Financial, administrative and
accounting procedures manual does
not exist. Low experience of the
PCU and the Ministry in World
Bank project managing
5. As institution included in the
MEPSA regarding their current
status, the COGEP are not allowed
to open account in commercial
bank but they need these
segregated account in managing of
CF sub-grants
The manual will be in place
before the project starts (
manual included agreed IFR
formats and contents )
Amendment of current
Ministerial decree related to
COGEP including
authorization of opening
account in commercial bank
MEPSA
MEPSA
Prior to
effectiveness
Prior to
effectiveness
Conclusion of Financial Management Assessment
9. The conclusion of the assessment is that, by taking into account the mitigation measures
proposed, the financial management arrangements will be adequate to carry out the project.
Institutional and implementation arrangements
10. The implementing entity chosen is Togo Ministry of Primary and Secondary Education and
Literacy (MEPSA). To strengthen the capacity of operational departments of this ministry, a
project coordination unit (PCU) has been established and includes an Accounting and Procurement
Unit (UCG) who is responsible for Fiduciary management aspects.
11. The UCG will comprise the following core group of experts: a procurement officer (already
recruited by the AFD-funded EPTT project), a financial comptroller (already recruited by the
EPTT project), one FM specialist and one accountant (to be recruited with qualifications and
experience satisfactory to the World Bank). From our assessment the qualification and experience
66
of the financial comptroller are satisfactory even if he had low knowledge in World Bank FM
procedures.
12. The World Bank has agreed with the Government and other donor partners, especially
AFD, that the design of implementation arrangements will be done with the aim of skills transfers
for actual enhancement of technical capacity of civil servants. It was agreed that Togo government
will designate at central and decentralized levels counterparts/homologues of the UCG staff and
these staff will work closely the specialists appointed.
13. Regarding School grants management and school building activities, it was agreed to
involve school-based management committees (Comité de Gestion des Ecoles Primaires –
COGEP) in these operations as delegated agencies (Agences de gestion déléguée). Thus, Togo
government promised to take a Ministerial decree which will organize legal status of these Boards
and allow them to open subsidiaries commercial bank accounts for the management of the project
funds. This decree is expected to be taken before effectiveness. The COGEP will be composed of
representatives of parents associations and local officials of the MEPSA. These arrangements will
include double signatories on banks accounts, the set up of a sound financial management system
including a proper filling of all expenditures, the drafting of periodic technical and financial
reports to be validated by School inspectors and /or others civil work experts to be involved in the
project. Public accountants, acting as finance controller, in decentralization level will be involved
in an ex-post review of the COGEP fiduciary activities helped by work tools to be provided in the
Project Financial and Accounting Manual. Annual technical audit will be carried out to ensure that
activities financed meet the actual objectives of the project.
Funds flow
14. In line with IDA procedure a segregated Designated Account (DA) will be opened and
managed by the PCU .The Designated Account to be opened in a reputable and stable commercial
bank in Togo acceptable to the World Bank will receive Grant proceeds on the basis of the
Project’s periodic expenditures and cash needs expressed through the withdrawal applications. As
DA, its cash withdrawal transactions would be authorized respectively by the Project Coordinator
and the MEPSA Director of Administration and Finance (DAF). The account is set up to fund
eligible expenditures based on the approved annual action plans.
15. The project will use report-based disbursement procedures for transferring funds to the
Designated Account. The ceiling of the Designated Account will be based on cash forecast for two
(2) quarters as provided in the quarterly IFR. The process for preparation of the IFR will be set out
in the Project Financial and Accounting Manual.
16. Four (4) disbursement methods will be available for use under the project, i.e. direct
method, reimbursement method, special commitment method and the advances method. The
advances method will be applied for the replenishment of the DA. Further instructions on
disbursement and details on the operation of the DA will be outlined in the disbursement letter.
Regarding delegated agencies as COGEP, subsidiaries segregated account will be opened in
commercial bank and manage with procedures in accordance with main lines which will be
described in the Project Financial and Accounting Manual. Adequate fiduciary oversight
arrangements will be in place within the COGEPs to manage the subsidiary accounts.
67
Disbursements to delegated agencies will be based on reports properly approved by civil work
experts or other appropriate specialists.
Legend:
Direct Payments
Reports / Documents
Resources
17. Staffing. Two agents have been recruited in the UCG (a financial controller and a
procurement specialist). The PCU is under consolidation. The FM staff of the MEPSA has not
appropriate qualification in FM and no experience in IDA project managing. Then, the
appointment of one FM specialist and one accountant is recommended in order to reduce delay in
recording transactions and submission of IFR and Withdrawal Applications.
18. Accounting policies and procedures. A Project Financial and Accounting Manual has
been developed in accordance with World Bank policies and procedures and will be implemented
by the UCG. The project accounting procedures will be based on accrual basis using OHADA
Catalytic Fund
Grant Account
managed par IDA
Designated Account in commercial bank
managed by PCU
Subsidiaries Account in
commercial bank
Managed par delegated agencies
as COGEP
Others Goods and services
providers
IFR/WA
IFR/DP/WA
68
principles. The financial report expected from delegated agencies such as COGEP will be based on
cash basis accounting principles. A simplified financial manual will be provided for COGEP.
19. Internal audit and internal control. There is no internal auditor recruited within the
project. The internal control will be organized through the Project Financial and Accounting
Manual with appropriate segregation of duties and responsibilities. The public accountants of
MEPSA at decentralization level, acting as finance controller, will be involved in ex-post reviews
of statements of expenditures related to delegated agencies operating under their area.
20. Budgeting. Budget preparation process and its monitoring is defined in the Project
Financial and Accounting Manual. The budget monitoring will be modernized by using the
accounting software (rather than using Excel spreadsheet). However, at decentralized levels
(delegated agencies), simple budget monitoring based for example on Excel spreadsheet is
acceptable.
21. External audit. The project’s annual financial statements and Interim Financial Reports
prepared by UCG as well as internal control system applied would be subject to an annual audit by
a reputable, competent and independent auditing firm based on terms of reference that are
satisfactory to IDA. The TOR for the engagement of external auditor will be agreed with IDA
prior to the appointment of the auditor. The auditor will provide a single audit report with
opinion(s) on the project’s annual financial statements and the Designated Accounts in compliance
with IFAC Standards on Auditing. The auditor will be required to express an opinion on the
accuracy and the relevance and eligibility of expenditures made under the project and the extent to
which the Interim Financial Reports can be relied upon as a basis for the disbursements. In
addition to the audit reports, the external auditor will be required to prepare a Management Letter
giving observations, comments, and providing recommendations for improvements in accounting
records, systems, controls and compliance with financial covenants in the Financing Agreement.
The audit scope would be tailored to the project’s specific risks, in accordance with World Bank
requirements. There is no outstanding audit for projects being implemented by MEPSA, the
project implementing agency for this Operation.
22. It will be required to the external auditor to manage samples of COGEP to be audited. The
UCG will also be required to provide, no later than June 30 of the following fiscal year, a single
audited annual financial statement, expressing opinion on the elements of the audit as described in
the TORs. The selection of the auditor is expected to be completed no later than four months after
effectiveness.
23. In addition, to the above audit arrangements, the World Bank will implement annual
technical audit on the project activities.
24. Reporting and monitoring. The UCG will prepare quarterly IFRs during project
implementation. The reporting format and procedures is documented in the Project Financial and
Accounting Manual. IFRs are composed of the following FM aspects:
Financial reports: (i) sources and uses of funds by funding source and (ii) uses of funds by activities
of the project;
Projected expenditures and cash forecast for the next semester (six months);
69
Bank reconciliation statement for the Designated Account and the Operations Account showing the
cash balance available at end of the quarter under review;
List of payments for contracts subject to prior review;
List of payments for contracts not subject to prior review.
25. Quarterly Interim Financial Reports and annual project’s financial statements will cover all
activities financed through the World Bank funds. The project’s annual financial statements will be
subject to external audit as described below. The Interim Financial Report shall be delivered to the
World Bank no later than 45 days after the end of the quarter.
26. The financial management indicators for the project are the following: (i) part of the budget
disbursed every three months at the level of each component of the project; (ii) nature of the
opinion from the external Auditor on the annual financial statements; (iii) number of internal
control major weaknesses identified by the internal and the external auditors; (iv) scope of internal
audit work performed as well as the statistics on the action plans implementation; and (v) rating of
FM overall control risk.
27. Financial covenants. The following points of the financial covenants must be stated in the
Financing Agreement: the Recipient (i) to maintain the project’s financial management systems
including records, accounts, and preparation of related financial statements in accordance with
accounting standards acceptable to the Association and to be audited; and (ii) to prepare and
furnish to IDA un-audited IFRs.
28. Supervision plan. The project will be supervised on a risk-based approach. Supervision
will focus on the status of financial management system to verify whether the system continues to
operate well and provide support where needed. It will comprise inter alia, the review of audit
reports and IFRs, advice to task team on all FM issues, review of annual audited financial
statements and management letter. Based on the current risk assessment which is Substantial, on-
site visit supervisions will be twice a year during the implementation and a review of transactions
will be performed on that occasion. To the extent possible, mixed on-site supervision missions will
be undertaken with procurement, monitoring and evaluation and disbursement colleagues.
70
Annex 8: Procurement Arrangements
Togo EFA-FTI Catalytic Fund Grant
Background--Procurement Reform
1. A Country Procurement Assessment Review (CPAR) for Togo was carried out in October
2003. The Togo CPAR and the action plan proposed for national procurement system reform was
adopted by the Government on March 25, 2008. This action will support the modernization of the
regulatory and institutional framework. Its objectives are to (i) improve the management of public
contracts, (ii) modernize public procurement procedures, (iii) strengthen capacities of institutions
and personnel involved in public procurement, (iv) establish an independent procurement control
system, and (v) adopt anti-corruption measures. In addition, the plan provides for the gradual
empowerment of the decentralized procurement entities, the definition of a strategic framework for
capacity building in procurement and the updating of tools such as standard bidding documents
and manual for the procurement procedures to ensure effective use of the procurement code.
2. Due to delay in the adoption of the CPAR, the level of implementation of procurement
reforms action plan has been very slow and is rated unsatisfactory by the World Bank’s review.
Only the creation of the National Committee of Coordination and Monitoring (NCCM) under the
Ministry of Economic Planning and Finance has been completed. As part of the implementation of
procurement reforms, a consultant evaluated, in September 2008, the national procurement system
on the basis of OECD/DAC indicators and prepared, in December 2008, a new procurement law
and procurement code with legal and institutional procurement framework in line with West Africa
Economic and Monetary Union (WAEMU) Procurement Guidelines.
3. The new procurement institutional framework is comprised of (i) a Procurement regulatory
entity, independent of procurement transactions and made up of members selected from the public
and private sectors as well as representatives from civil society organizations. The entity shall be
responsible for public procurement policy and audits and will deal with complaints from bidders;
(ii) a Public Procurement Control Entity which will be responsible for controlling the quality of
procurement transactions, and (iii) Public Procurement Units at Sector Ministries and decentralized
Agencies at the local level whose responsibility it would be to ensure that the new procurement
code was fully adhered to at the local level. The new procurement law has been and promulgated
on June 30 2009. The adoption of the new procurement code is expected at end of 2009.
4. Guidelines. Procurement for the proposed project will be carried out in accordance with
the World Bank’s “Guidelines: Procurement under IBRD Loans and IDA Credits” dated May
2004, revised through May 2010; and “Guidelines: Selection and Employment of Consultants by
World Bank Borrowers” dated May 2004 revised through May 2010, and the provisions stipulated
in the Grant Agreement. The general descriptions of various items under different expenditure
categories are described below. For each contract to be financed by the grant, the different
procurement methods or consultant selection methods, the need for prequalification, the estimated
costs, the prior review requirements, and the time-frame shall be agreed between the Borrower and
the World Bank project team in the Procurement Plan.
5. Procurement Documents. The procurement will be carried out using the World Bank’s
Standard Bidding Documents (SBD) or Standard Request for Proposal (RFP) respectively for all
71
International Competitive Bidding (ICB) for goods and recruitment of consultants. For National
Competitive Bidding (NCB), the Recipient could use the bidding document approved by the World
Bank or submit a sample form of bidding document to the World Bank for prior review which
could be used throughout the project implementation period once agreed upon. The Sample Form
for Evaluation of Reports developed by the World Bank will be used for evaluation of bids and
proposals.
Advertising procedure
6. General Procurement Notice (GPN), Specific Procurement Notices (SPN), Requests for
Expression of Interest (EOI) and results of the evaluation and contracts award should be published
in accordance with advertising provisions in the World Bank’s “Guidelines: Procurement under
IBRD Loans and IDA Credits” dated May 2004 revised through May 2010; and “Guidelines:
Selection and Employment of Consultants by World Bank Borrowers” dated May 2004 revised
through May 2010. The borrower will keep a list of received responses from potential bidders
interested in the contracts.
7. For ICB and request for proposal that involves international consultants, the contract
awards shall be published in UNDB online and in dgMarket within two weeks of receiving IDA’s
"no objection" to the recommendation of contract award. For Goods, the information to publish
shall specify: (i) name of each bidder who submitted a bid; (ii) bid prices as read out at bid
opening; (iii) name and evaluated prices of each bid that was evaluated; (iv) name of bidders
whose bids were rejected and the reasons for their rejection; and (v) name of the winning bidder,
and the price it offered, as well as the duration and summary scope of the contract awarded. For
Consultants, the following information must be published: (i) names of all consultants who
submitted proposals; (ii) technical points assigned to each consultant; (iii) evaluated prices of each
consultant; (iv) final point ranking of the consultants; and (v) name of the winning consultant and
the price, duration, and summary scope of the contract. The same information will be sent to all
consultants who submitted proposals. The other contracts should be published in national gazette
periodically (at least, quarterly) and in the format of a summarized table covering the previous
period with the following information: (i) name of the consultant to whom the contract was
awarded; (ii) the price; (iii) duration; and (iv) scope of the contract.
Procurement methods
8. Procurement of Works: The Works to be financed by IDA would include construction
and rehabilitation of schools’ classrooms, latrines and teachers’ training centers. Contracts of
works estimated to cost US$3,000,000 equivalent or more per contract shall be procured through
International Competitive Bidding (ICB). Contracts estimated to cost less than US$3,000,000
equivalent may be procured through NCB. Contract estimated to cost less than US$50,000
equivalent per contract may be procured through shopping procedures. For shopping, contracts
will be awarded following evaluation of bids received in writing on the basis of written solicitation
issued to several qualified suppliers (at least three) who have a physical shop of the concerned
goods. The award would be made, to the supplier with the lowest price, only after comparing a
minimum of three quotations open at the same time, provided he has the experience and resources
to execute the contract successfully. For shopping, the project procurement officer will keep a
register of suppliers updated at least six monthly.
72
9. Procurement of Goods: The Goods to be financed by IDA would include: office and
classrooms furniture, and equipments, vehicles, office supplies, school manuals and materials, etc.
Similar Goods that could be provided by a same vendor would be grouped in bid packages
estimated to cost at least US$300,000 per contract and would be procured through International
Competitive Bidding (ICB). Contracts estimated to cost less than US$300,000 equivalent may be
procured through NCB. Goods estimated to cost less than US$50,000 equivalent per contract may
be procured through shopping procedures. For shopping, the condition of contract award shall be
the same process as describe above for procurement of Works.
10. Selection of Consultants: The project will finance Consultant Services such as surveys,
technical and financial audits, technical assistance, activities under the institutional strengthening
component, engineering designs and supervision of works, trainers and workshops facilitators.
Consultant firms will be selected through the following methods: (i) Quality and Cost Based
Selection (QCBS); (ii) selection based on the Consultant’s Qualification (CQS) for contracts which
amounts are less than US$50,000 equivalent and are relative to exceptional studies and researches
which require a rare and strong expertise; (iii) Least Cost Selection (LCS) for standard tasks such
as insurances and, financial and technical audits ; and (iv) Single Source Selection (SSS), with
prior agreement of IDA, for services in accordance with the paragraph 3.9 of Consultant
Guidelines. Individual Consultant (IC) will be hired in accordance with paragraphs 5.1 to 5.4 of
World Bank Guidelines. Sole source may be used only with prior review of the World Bank.
11. Short lists of consultants for services estimated to cost less than US$200,000 equivalent per
contract may be composed entirely of national consultants in accordance with the provisions of
paragraph 2.7 of the Consultant Guidelines, if a sufficient number of qualified individuals or firms
are available. However, if foreign firms express interest, they would not be excluded from
consideration.
12. Sub-projects procurement: Some of the classrooms will be built using a CDD approach
through which the procurement and management of contracts are delegated by MEPSA to local
communities; the contracts will be awarded on the basis of the simplified procedures judged
acceptable to the World Bank in the Project Financial and Accounting Manual. The PCU through
his decentralized Agencies will be responsible for the compliance with the procedures agreed.
13. Procurement of consulting services other than consulting services covered by
consultant Guidelines: Least Cost Selection (LCS) or shopping will be used.
14. Training, Workshops, Study Tours, and Conferences: The training (including training
material and support), workshops, conference attendance and study tours, will be carried out on the
basis of approved annual training and similar activities plan. A detailed training or workshop plan
giving nature of training/workshop, number of trainees/participants, duration, staff months, timing
and estimated cost will be submitted to IDA for review and approval prior to initiating the process.
The appropriate methods of selection will be derived from the detailed schedule. After the training,
the beneficiaries will be requested to submit a brief report indicating which skills have been
acquired and how these skills will contribute to enhance his performance and contribute to the
attainment of the project objective.
73
15. Operational Costs: Operating costs financed by the Project are incremental expenses,
including office supplies, vehicles operation and maintenance, maintenance of equipment,
communication costs, rental expenses, utilities expenses, consumables, transport and
accommodation, per diem, supervision costs and salaries of locally contracted staff. They will be
procured using the procurement procedures specified in the Project Financial and Accounting
Manual.
Assessment of the Agencies Capacity to Implement Procurement
16. The World Bank’s Procurement Specialist based in the Togo Country Office assessed the
capacity of the Ministry of Primary and Secondary Education and Literacy (MEPSA). The
assessment reviewed the organizational structure for implementing the project and the interaction
between the project’s staff that will be responsible for procurement (procurement officer) and other
entities concerned by Project’s components implementation. The assessment showed that the
MEPSA have a long experience in procurement, but not with World Bank’s procurement
procedures; there is no a procurement specialist in the Ministry. The assessment also showed that
the national procurement procedures are being reviewed and there is no bidding documents,
procurement manual, and procurement rules currently used at the National level acceptable to the
World Bank; hence, no special exception may be stipulated in the Financing Agreement regarding
compliance with IDA Guidelines, which override national regulations.
17. The main issues/risks concerning the procurement for implementation of the project
identified are lack of (i) procurement specialist to handle the project procurement activities, (ii)
procurement planning; (iii) contract awards advertisement; (iv) independent mechanism to handle
bidders’ complaints; (v) internal control; and (vi) appropriate record keeping. The Ministry is not
using the post-qualification system for goods and works bids evaluation; he uses the merit (points)
system which is arbitrary and not economic.
18. The measures agreed upon to strengthen the framework of procurement within the MEPSA
are: (i) strengthening, through specific training and learning-by-doing, the procurement capacity of
procurement officers; (ii) recruit a procurement consultant and nominate an civil servant as a
procurement officer of the project; (iii) set-up an internal control through the Project Financial and
Accounting Manual; and (iv) use of World Bank Procurement Guidelines and standard bidding
documents for international competitions and use other World Bank’s approved documents for
national competitions. The Table A8.1 summarizes the project preparation actions plan:
Table A8.1: Summary of Project preparation actions plan
Task Completion Responsibility
Submit to the World Bank an acceptable procurement plan of the first 12
months of project implementation Before Negotiations SG
Nominate a civil servant of MEPSA as project procurement officer after
agreement with the World Bank on the profile (qualifications). Before negotiations SG
Recruitment of a procurement consultant Before effectiveness SG
Procurement training for all implementation entities that will be involved in
procurement process
Within the end of the first
year of implementation SG
Preparation of Project Financial and Accounting Manual Before effectiveness SG
74
19. Based on the procurement capacity assessment, and on the experience on the ground,
the overall project procurement risk is rated Average.
20. Procurement Implementation Arrangements. For project implementation purpose,
Government and the World Bank agreed to use three levels of procurement implementation
entities: the central level with MEPSA Project Coordination Unit, the urban level with Contract
Management Agency and the rural level with grassroots Communities.
21. Procurement by MEPSA: The Project Coordination Unit (PCU) through the Procurement
Specialist (PS) and the nominated civil servant procurement officer will be responsible for the
coordination of all procurement activities. To strengthen the capacity of MEPSA, the Procurement
Specialist will work together with the procurement officer.
22. Procurement by Contract Management Agency (CMA): The World Bank agreed with the
Government to delegate the constructions of classrooms in urban areas and teachers’ training
centers and their supervisions to Contract Management Agency (CMA). A contract will be signed
between the MEPSA and the CMA.
23. Procurement by Communities: The procurement activities at Community level will concern
essentially the construction and equipment of classrooms. The school committees (COGEP) will
carry out the implementation of procurement under the supervision of DRE through the
decentralized staff of the PCU. Prior to disbursement to the communities, they will receive
systematically the required basic procurement and disbursement trainings. For the implementation
of this CDD approach, the MEPSA will benefit from the support of the IDA financed current CDD
project (PDC) management and will use simplified procedures and materials of this project agreed
by the World Bank.
24. Procurement Plan. The Government developed a Procurement Plan for project
implementation, which provides the procurement methods for each contract. The plan covers the
first eighteen months of project implementation. This plan will be agreed between the Borrower
and IDA Project Team during the negotiations and will be available at the Ministry of Primary and
Secondary Education and Literacy (MEPSA); it will also be available in the Project’s database and
in the World Bank’s external website. The Procurement Plan will be updated in agreement with the
World Bank at least annually in conjunction with an updated Project Annual work program or to
reflect an action plan following improvements in institutional capacity. All procurement will be
carried out in accordance with the original or formally updated agreed procurement plan.
25. Fraud, Coercion, and Corruption. All procuring entities and staff, as well as Project
Implementation Agencies, Borrower, bidders, suppliers, and contractors shall observe the highest
standard of ethics during the procurement and execution of contracts financed under the project in
accordance with paragraph 1.14 of the Procurement Guidelines and paragraph 1.22 of the
Consultants Guidelines.
26. Frequency of procurement supervision missions and Audits. In addition to the prior
review to be carried out from World Bank offices, the capacity assessment of the procurement
activities has recommended supervision every six months and at least one World Bank annual Post
Procurement Review (PPR); the ratio of post review will be at least 1 to 5 contracts. The
Independent Post Review could be conducted through a consultant selected by the World Bank.
75
The project implementation agency shall send to the World Bank, every six month, the project
procurement management report with details on implementation progress, problems and solutions
proposed. A technical audit will also be carried out once a year during the project implementation,
to report on the procurement process, contract management, fiduciary compliance, and the quality
of the works and goods provided.
Attachment 1: Details of the Procurement Arrangement involving international competition
1. Works, Goods, and non consulting services.
(a) List of contract Packages which will be procured following ICB and Direct contracting:
Goods
1 2 3 4 5 6 7 8 9 10
Ref
. No.
DESCRIPTION
Estimated
Amount
(US$)
Procureme
nt Method
Pre
qualification
(yes/no)
Domestic
preference
(yes/no)
Prior
Review
(yes/no)
Estimated
Bids
opening/clos
ing Date
Expected
Contract
Signature
Date
Comments
1
School Furniture in 2011/12
delegated to CMA
192,544 ICB No No Yes 12/19/2011 04/02/2012
2 Textbooks 5,388,214 ICB No No Yes 01/19/2011 05/19/2011
(b) Prior review: all contracts of works estimated to cost above US$3,000,000, all contracts of goods
estimated to cost above US$300,000 and the first two (2) contracts of each procurement method,
irrespective of the amount, will be subject to IDA prior review as determined mandatory in paragraphs 2
and 3 of Annex 1 of the World Bank’s procurement Guidelines.
(c) Post review: for each contract not submitted to the prior review, the procurement documents will be
submitted to IDA post review in accordance with the provisions of paragraph 4 of Annex 1 of the World
Bank’s procurement Guidelines. The post review will be based on a ratio of at least 1 to 5 contracts.
2. Consulting Services.
(a) List of Consulting Assignments with short-list of international firms.
1 2 3 4 5 6 7 8
Ref No
DESCRIPTION Amount
ESTIMAT. (US$ 000)
Selection Method
Prior Review
(Yes/No)
Estimated Bid Opening
Date
Estimated contract
signing date
Comments
1 Survey and monitoring of the civil works by CMA in 2010/11 (urban schools)
71,238 QCBS Yes 11/30/2010 5/14/2011 …..
2 Survey and monitoring of the civil works
by CMA in 2011/12 (urban schools) 124,668 QCBS Yes 8/16/2011 1/28/2012 …..
3 Survey and monitoring of the civil works
by CMA in 2011/12 (teacher training institutes)
80,640 QCBS Yes 1/14/2011 6/28/2011 …..
76
(b) Prior review: (i) each contract estimated to cost more than US$200,000 per contract for Firms ; (ii) all
single source selection; (iii) the first two (2) contracts of each selection method irrespective of the amount ;
(iv) all training; (v) all terms of reference of contracts that estimate cost is greater than US$10,000, and (vi)
all amendments of contracts raising the initial contract value by more than 15 percent of original amount or
above the prior review thresholds will be subject to IDA prior review mandatory in paragraphs 2 and 3 of
Annex 1 of the World Bank’s Consultants selection Guidelines. For individual consultants, each contract
estimated to cost more than US$100,000 will be subject to IDA prior review; in addition, the prior review
of contract under this threshold will be determined on procurement plan on case-by- case basis.
(c) Short lists composed entirely of national consultants: Short lists of consultants for services estimated to
cost less than US$200,000 equivalent per contract may be composed entirely of national consultants in
accordance with the provisions of paragraph 2.7 of the Consultant Guidelines.
(d) Post review: For each contracts for services not submitted to the prior review, the procurement
documents will be submitted to IDA post review in accordance with the provisions of paragraph 4 of Annex
1 of the World Bank’s Consultant Selection Guidelines. The post review will be based on a ratio of at least
1 to 5 contracts.
77
Annex 9: Economic and Financial Analysis
Togo EFA-FTI Catalytic Fund Grant
1. Macro-economic context is getting better but is still severely constrained. Public
resources for education sector depends on four main factors: (i) the global wealth of the country,
represented by the Gross Domestic Product (GDP), (ii) the capacity of the State to generate
Government resources from tax and non tax revenues, expressed as government resources in % of
GDP, (iii) the external aid and (iv) the budget priority given to education sector.
Table A9.1: Macro-economic indicators and budget priority for education, 1995-2007
1995 2000 2006 2007
GDP (billions CFAF)
Current prices 602.2 871.9 1145.6 1194.9
2007 Constant prices 817.4 1 010.9 1 175.8 1 194.9
Government resources (billions FCFA)
Current prices 105.2 120.9 189.4 214.5
2007 constant prices 142.8 140.2 194.4 214.5
As a % of GDP 17.5 13.9 16.5 18.0
From Domestic resources
As a % of GDP 16.0 13.4 15.9 16.9
From external resources
As a % of GDP 1.48 0.49 0.61 1.05
Expenditure on education
Recurrent expenditure on education (2007 constant billions CFAF) 33.8 40.5 38.2 44.1
Capital expenditure on education (2007 constant billions CFAF) 1.9 4.9 5.2 1.7
From Domestic financing 0.7 0.6 2.7 1.7
From external financing 1.2 4.3 2.5 0.0
Total expenditure on education (2007 constant billions FCFA) 35.7 45.3 43.3 45.8
Recurrent education expenditure as a % of total recurrent expenditure (exluding debt service) 24.5 28.6 25.2 27.8
Recurrent education expenditure as a % of domestic revenues 25.9 29.9 20.4 21.8
Recurrent education expenditure as a % of GDP 4.1 4.0 3.2 3.7
Total education expenditure as a % of GDP 4.2 4.1 3.5 3.8
Source : Education Sector Plan
2. In real terms (constant 2007 CFAF) GDP has grown up from 817 billion in 1995 to 1 195
billions in 2007, representing an average annual growth rate of 3.2%. Due to a similar growth rate
of the population, the GDP per capita (in real terms) is the same in 2007 as in 1995. In 2007 it is
estimated to be around 197 000 FCFA per capita.
3. Government resources grew up (in constant 2007 prices) from 143 CFAF billion in 1995 to
214 CFAF billions in 2007. On average it corresponds to a 3.4% annual growth rate over the
period.
78
4. Nevertheless, the fiscal space in Togo is still low compared to other African countries:
government resources (excluding grants) equals 16.9% of GDP while the African median53 is
19.6% of GDP. The budget constraint is then tighter in Togo than in an average African country.
5. External aid received by Togo is very low compared to other African countries. Togo
still suffers from a lack of external financing. During the 2004-2006 period, the external aid
accounted for only 3.8% of GDP, to be compared to an average of 10% of GDP in Africa. Togo is
one of the less aided countries on the continent (see Figure A8.1 below).
Figure A8.1: External aid as % of GDP, 2004-2006 average
0%
5%
10%
15%
20%
25%
30%
35%
40%
45%
C. I
voir
e
Swaz
ilan
d
Nam
ibia
Leso
tho
Togo
Ke
nya
Ch
ad
Gu
ine
a
Sud
an
Cam
ero
on
Be
nin
Nig
eri
a
CA
R
Sen
ega
l
Gam
bia
Zim
b
Gh
ana
Mau
rita
nia
Co
mo
ros
BF
Tan
zan
ia
Ave
rage
Mal
i
Nig
er
Uga
nd
a
Eth
iop
ia
C. V
erd
e
Mad
ag
Mo
z
Mal
awi
Co
ngo
Erit
rea
Zam
bia SL
Rw
and
a
DR
C
G B
issa
u
Bu
run
di
Lib
eri
a
Source : OECD, DAC data
6. There is a clear budget priority for education. During the 1995-2007 period, total
expenditure for education increased (in constant 2007 prices) from 35.7 to 45.8 CFAF billion,
which corresponds to a 2.1% average annual growth rate. Expenditure in education is mainly
recurrent spending; in 2007, capital expenditure was only 1.7 CFAF billion while recurrent
expenditure was 44.1 CFAF billion.
7. Budget priority for education is high comparatively to other African countries. In
2007, recurrent education expenditure represented 21.8% of domestic revenues, to be compared to
18% on average in African countries. Expressed as a % of total government recurrent expenditure
(debt service excluded), education represents 27.8% in Togo, to be compared to an African
average of 20.4%.
8. Households are still asked to contribute a lot to sector financing. In 2006, before the
school fee abolition that started in 2008/09, households were financing on average 35.6% of the
cost of education (and the share was 45% in primary education). No data is yet available for the
53
Regarding this indicator, the median is more appropriate than the average due to the presence of oil-revenue
countries that skew upwards the African average
79
period after school fee abolition but it is very likely that household financing still remain high
because (i) the Government subsidies for compensating the fee abolition do not go to EDIL
(community) schools and (ii) the school fee abolition only regards only pre-school and primary
education.
9. Spending distribution by level of schooling is in line with the development needs.
Recurrent expenditure (2007) is split by level of education as shown in the Table A9.2. The share
for primary education (39%) is a bit lower than both the African average (44%) and the EFA-FTI
reference benchmark (50%). Nevertheless, due to a share for education in the budget higher than
the FTI reference (28% in Togo compared to 20% in the EFA-FTI indicative framework), primary
education receives 10.9% of total recurrent expenditure, which is higher than what is
recommended in the indicative framework (10% = 50% x 20%). Additionally, the fact that lower
secondary education is more advanced in Togo than on average in Africa (Gross enrolment ratio of
60% in Togo versus 50% for the African average) legitimates for a higher share of expenditure
allocated to secondary education.
Table A9.2: Distribution of recurrent expenditure by level of education, in %, 2007
Level of education % of recurrent expenditure
Pre-primary 1%
Primary 39%
Secondary 32%
TVET 8%
Higher 20%
Source : Education Sector Plan
10. Recurrent public spending per pupil (unit cost) are comparatively low in post-
primary levels. The public spending per pupil in Togo is similar to African average in primary
education but significantly lower than African average in secondary, TEVET and higher education
(see Table A9.3). It is noteworthy that higher education public unit cost decreased from 2.15 per
capita GDP in 1999 to 1.3 per capita GDP in 2007 due to an important student enrolment increase
not compensated by resources increase.
Table A9.3: International comparison of public recurrent unit cost, by level (expressed as %
of per capita GDP), 2007
Togo 1999 Togo 2007
African
Average
(2007 or LYA)
Ratio
Togo/African
average 2007
Primary 11% 10% 11% 0.91
Lower Secondary 24%
23% 29% 0.79
Upper Secondary 28% 57% 0.49
TVET N/A 61% 94% 0.65
Higher 215% 131% 314% 0.42
Source: Light Education CSR 2007, Education Sector Plan and World Bank data
80
11. Recurrent expenditure is not enough allocated towards pedagogical material. The
share of spending for teaching material is very low in Togo, at all levels of education (see Table
A9.4). In primary education, 95% of recurrent expenditure is allocated to salaries (of which 83%
for personal salaries in public schools and 12% for teachers’ salaries in confessional private
schools through a subvention to those schools). Recurrent expenditure other than teachers’ salaries
is only 10% in Togo, much lower than the EFA-FTI reference benchmark (33%).
12. In particular very few resources go to the school level. Nevertheless, the education sector
plan projects to increase spending other than teachers’ salaries and targets 23% in 2020, in order to
have more spending towards quality improvement.
Table A9.4: Distribution of expenditure by type and level of education, in %, 2007
Teachers
salaries Other salaries Material Transfers Total
Primary 89.6 5.3 5.1 0.0 100.0
Lower Secondary 84.2 10.0 5.9 0.0 100.0
Upper Secondary 80.3 14.1 5.6 0.0 100.0
TVET 47.6 33.8 12.1 6.4 100.0
Higher 38.8 24.7 36.5 100.0
Source: Education Sector Plan
81
Annex 10: Safeguard policy issues
Togo EFA-FTI Catalytic Fund Grant
1. The project has triggered OP 4.01 Environmental Assessment and OP 4.12 Involuntary
Resettlement due to potential negative environmental and social impacts related to the construction
of schools. The environmental screening category is B.
2. OP 4.01 Environmental Assessment. OP 4.01 was triggered due to the construction of
schools to be funded under the EFA-FTI project. To address the potential negative environmental
and social impacts, Government (MEPSA) prepared an Environmental and Social Management
Framework – ESMF (Cadre de Gestion Environnementale et Sociale - CGES). The ESMF was
cleared by the World Bank Environment and Natural Resources Management (AFTEN)
Department on October, 26, 2009.
3. The implementation of the ESMF will take into account the safeguard policies of the World
Bank and will be in compliance with environmental laws of Togo for each subproject. The ESMF
also determines the institutional arrangements for implementing the program, including those
relating to capacity building. The strengthening of environmental and social management for the
EFA-FTI project will achieve the following five specific objectives (i) identification of
environmental impacts and social impacts arising from subprojects (ii) implementation of
proposed mitigation measures, (iii) follow-thru the implementation of mitigation measures, (iv)
capacity building, and (v) estimation of environmental and social costs.
4. The institutional arrangement has been simplified (based on field experience) to be
operational. It puts forward the DPEE as responsible for implementing the Master ESMF and, the
Environment Department (Direction de l’Environnement -DE) as a delegated manager of the
process for environmental management of subprojects. This will lead to optimal building capacity
of all actors involved and saves cost.
5. OP 4.12 Involuntary Resettlement. OP 4.12 was triggered due to the potential need for
land acquisition which might lead to the loss of assets, loss of shelter, loss of access to economic
assets or loss of livelihood. To address potential negative social impacts due to land acquisition,
Government (MEPSA) prepared a Resettlement Policy Framework – RPF (Cadre Politique de
Recasement des Populations – CPRP) to provide guidelines for remediating to inconveniences
which may occur in case of land acquiring or temporary damage to private goods or source of
revenues. The RPF was cleared by the World Bank Africa Safeguards Policies Enhancement
Department (ASPEN) Department on October, 27, 2009.
The RPF presents the general principles that will guide all resettlement operation in the context of
the EFA-FTI project. If a sub-project requires one or more resettlement operations, the basic
structure will develop the Resettlement Action Plan (RAP) in a partnership with the relevant
institutions. The four steps of this plan are: (i) providing information for the local communities,
(ii) defining the sub-project, (iii) in case of need, defining a RAP and (iv) approval of the RAP by
the local organs and the institution in charge of the financing. The expropriation procedures
includes: a request in expropriation, plan of expropriation and a decree setting the content, estate
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investigation; declaration of public utility. The table A10.1 indicates the institutional actors in
charge of the implementation of the expropriation.
Table A10.1: Responsibilities regarding expropriation
Institutional Actors Responsibilities
STP/ DPEE
Diffusion of the RPF
National supervision of the resettlement Management of the resettlement fund
Payment of indemnities
Financing of sub-projects for rural and urban communities
DRE
Approval Committees Approval and Diffusion of RAP and summary RAP
Supervision of the process
Regional
Coordination
(CR-DRE)
Work in close cooperation with the communities or other execution bodies
Assistance to Community Organizations and the CVD/ COGEP
Appointing Social Experts in charge of the RAP implementation coordination
Appointment of Consultants to carry out the RAP and the follow-up and
evaluation
Supervision of the compensations for the affected people
Follow-up of the procedure of expropriation and compensation
Submission of the reports of activities to the DPEE
Traditional Chiefs Recording of the complaints and claims
Village Community (CVD)
Identification and release of the sites which were to be subject of expropriation
Follow-up of the resettlement and compensations
Diffusion of RAP and PSR
Treatment according to the procedure of conflicts settlement
Participation in the proximity follow-up.
6. The main text constituting the land tenure system in Togo rests on the ordinance N° 12 of
February 6, 1974. The acquisition or the expropriation of the land necessary for the execution of
public utility declared operations is governed by decree n° 45-2016 of September 1, 1945 which
enforcement remains null and void. According to text on land property in Togo, any land owner
must place at disposal for the State at the time of the allotment 50% of land for social works (road,
schools, health centers). The State can place the expropriate land out at disposal of a local
authority or a private person who must carry out the works of public interest operations. The
expropriation of the land is the subject of the respect of a very rigorous procedure with the aim is
to guarantee the rights of the expropriated people in the administrative as well as in the legal
phase.
7. Despite a lot of concordances, the Togolese regulation (procedures and practices) in terms
of involuntary displacement and the World Bank provisions of the OP 4.12 show discrepancies on:
(i) criteria of eligibility and the categories of impact giving right to a compensation; (ii) the
definition of the damage incurred; (iii) compensation alternatives; (iv) deadlines for compensation,
(v) resettlement costs, economic rehabilitation and (vi) the follow-up and evaluation. Each time
there is a difference between the two procedures, the provisions of the OP 4.12 will be applied.
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8. The key stakeholders regarding safeguard policies are:
- MEPSA (Project Coordination Unit, Direction of Education Planning and Evaluation,
Environment Department, and Regional Directorates)
- Local communities, towns and villages;
- School Committees (COGEP);
- Local NGOs ;
- Construction Contractors; and
- Supervising Architects/Consultants.
9. The best method of consultation and disclosure on safeguard policies is to hold a
stakeholders meeting with the communities (Project Affected Persons) at the sites before the
commencement of the project activities. As the sites have yet to be selected, it is not possible at
this time to hold consultations with project affected persons although general consultations were
held within the Ministry of Education and with NGOs.
10. The Project Coordination Unit includes a Communities/Grassroot Training Coordinator in
charge of organizing the training of the school committees and communities where schools will be
built. This training will include disclosure on safeguard policies and potential remedial actions to
be taken, in line with ESMF and RPF recommendations.
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Annex 11: Project Preparation and Supervision
Togo EFA-FTI Catalytic Fund
Planned Actual
PCN review June 11, 2009 June 11, 2009
Decision meeting January 28, 2010 February 3, 2010
EFA-FTI CF Board approval May 7, 2010 May 7, 2010
Negotiations July 7-8, 2010 July 8, 2010
Signature October 29, 2010 October, 29, 2010
Planned date of effectiveness January 10, 2011
Planned date of mid-term review July 10, 2012
Closing date May 1, 2014
Key institutions responsible for preparation of the project:
Ministries of (i) Primary and Secondary Education and Literacy, (ii) Technical education and
vocational training, (iii) Higher Education and Research, (iv) Economy and Finance, (v)
Planning, Cooperation and Development and (vi) Social Affairs, Women empowering and
protection of children and elderly.
Agence Française de Développement (Coordinating Agency)
UNICEF
UNESCO-Pôle de Dakar
Reviewers: CN Stage: Rachidi Radji (Lead Human Development Specialist, AFTED); Marcelo Becerra (Sr.
Education Economist, LCSHE); Shobhana Sosale (Sr. Operations officer, AFTED); Kouassi
Soman (Sr. Operations Officer, EFA-FTI Secretariat);Warren Waters (Regional Environmental
and Safeguards Advisor, AFTQK); Svetlana Khvostova (Information Specialist, AFTQK);
Nathalie Lahire (Education Economist, AFTED); William Experton (Lead Education Economist,
AFTED); Linda English (Sr. Education Specialist, EFA-FTI Secretariat) and Peter Ngomba (Sr.
Education Specialist, AFTED).
PAD Stage: Olav Rex Christensen (Sr. Education Specialist, HDNED); Susan Opper (Sr.
Education Specialist, SASHD); Peter Holland (Education Specialist, LCSHE); Anna Victoria
Gyllerup (Sr. Operations Officer, AFTRL); Dung-Kim Pham (Operations Officer, AFTED) ;
Cristina Santos (Sr. Education Specialist, AFTED) ; Kara Suter (Consultant) ; Michael Drabble
(Sr. Education Specialist, LCSHE) and Ayesha Vawda (Sr. Education Specialist, MNSHE).
World Bank staff and consultants who worked on the Project included:
Name Title Unit
Mathieu Brossard Sr. Education Economist, TTL AFTED
Yacinthe Gbayé Education Economist AFTED
Cherif Diallo Sr. Education Specialist AFTED
Kokou Amelewonou Extended Term Consultant AFTED
Itchi Gnon Ayindo Sr. Procurement Specialist AFTPC
Alain Hinkati Financial Management Specialist AFTFM
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Olav Rex Christensen Sr. Education Specialist HDNED
Africa Eshogba Olojoba Sr. Environmental Specialist AFTEN
Abdoul-Wahab Seyni Sr. Social Development Specialist AFTCS
Serge Theunynck Consultant, Civil works AFTED
Alexandra Tran Consultant, Civil works AFTED
Youmna Sfeir Extended Term Consultant AFTED
Peter Materu Lead Education Specialist AFTED
Andy Tembon Coordinator AFTHE
Anthony Molle Counsel LEGAF
Daria Goldstein Senior Counsel LEGAF
Said Hanafy Extended Term Consultant LEGAF
Franco Russo Operations Analyst AFTED
Danièle Jaekel Operations Analyst AFTHE
Cornelia Jesse Operations Officer AFTED
Jee-Peng Tan Adviser HDNED
Giuseppe Zampaglione Sr. Operations Officer AFTSP
Mohamed Diaw Information Assistant CFPPM
Norosoa Andrianaivo Language Program Assistant AFTED
Chantal Leontine Tiko Program Assistant AFMTG
Jean-Claude Hameidat Consultant, Education AFTED
Nebghouha Mint Vall Consultant, Capacity-building AFTED
Mamadou Ndoye Consultant, Education AFTED
Michael Wilson Consultant, Education AFTED
Koffi Segniagbeto Consultant, Statistics AFTED
World Bank funds expended to date on project preparation:
1. World Bank resources: US$15,000
2. Trust funds: US$279,720
3. Total: US$294,720
Estimated Approval and Supervision costs:
1. Remaining costs to approval: US$20,000
2. Estimated annual supervision cost: US$150,000
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Annex 12: Documents in the Project File
Togo EFA-FTI Catalytic Fund Grant
(i) World Bank Documents
Project Documents
Aides Memoires
Project Concept Note
Project Concept Note Review
Quality Enhancement Review
Project Appraisal Document
Integrated Safeguard Data Sheet
Project Preparation Facility
Other World Bank and Consultant Documents
World Bank (2009): Aligning skills development and development and competitiveness in Togo;
Working paper
World Bank (2009): La Zone franche Togolaise; Working paper (draft)
World Bank (2009): Revue des dépenses publiques et de la responsabilité financière de l’Etat
Volume 1 rapport principal in partnership with AfDB and EU.
World Bank : Stratégie de facilitation du transport et du commerce pour faciliter la croissance
économique 2009 ; rapport technique de base préparé dans le cadre du mémorandum économique
du pays, version provisoire
(ii) Togo Government Documents
MEPSA (2005) : Plan national d’action de l’éducation pour tous
MEPSA (2008) : Plan stratégique sectoriel de lutte contre les IST et le VIH/SIDA
MEPSA (2009) : Cadre de gestion environnemental et social
MEPSA (2009) : Cadre politique de recasement des populations
METFP (2006) : Plan stratégique sectoriel de lutte contre les IST et le VIH/SIDA
Ministère du secteur de l’éducation (2009) : Plan sectoriel de l’éducation
République du Togo (2009): Document de stratégie de réduction de la pauvreté 2009-2011
République du Togo (2009) : Lettre de politique sectorielle de l’éducation
Ministère du secteur de l’éducation/BM (2002) : Rapport d’Etat du système éducatif national
(RESEN)
Ministère du secteur de l’éducation/Pole de Dakar (2007) : Mise à jour du RESEN
Ministère du secteur de l’éducation/AFD/BM (2008) : Note pour la définition d’un programme
national de développement des activités en faveur de la petite enfance au Togo d’ici l’année 2020
Ministère du secteur de l’éducation/AFD/BM (2008) : Note pour la définition du cadre de
développement de l’alphabétisation au Togo d’ici l’année 2020
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Ministère du secteur de l’éducation/AFD/BM (2008) : Note pour la définition du cadre de
développement de l’enseignement technique et de la formation professionnelle au Togo d’ici
l’année 2020
Ministère du secteur de l’éducation/AFD/BM (2008) : Note pour la définition d’un cadre de
politique éducative pour l’enseignement supérieur au Togo d’ici l’année 2020
Ministère du secteur de l’éducation/AFD/BM (2008) : Note pour la définition d’un cadre de
politique sectorielle d’éducation au Togo
(iii)Development Partners
PNUD: Les sources de la croissance et le climat des investissements ; document de travail pour la
préparation du DSRP
UN, Department of Economic and Social Affairs: Togo Population profile 2007 and 2008
UN, Department of Economic and Social Affairs: World Urbanization Prospects The 2007
revision; revised May 2008
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Annex 13: Statement of Loans and Credits
Togo EFA-FTI Catalytic Fund Grant
Original Amount in US$ Millions
Difference between
expected and actual disbursements
Project ID FY Purpose IBRD IDA SF GEF Cancel. Undisb. Orig. Frm. Rev’d
P111064 2009 TG:Financial Sector and Governance Proj 0.00 12.00 0.00 0.00 0.00 8.98 -3.20 0.00
P113415 2009 TG:Emergency Infra.Rehab. & Energy Proj. 0.00 25.00 0.00 0.00 0.00 20.74 -2.55 0.00
P110943 2008 TG-Community Dev. Project ERL (FY08) 0.00 25.90 0.00 0.00 0.00 15.54 -0.47 0.00
Total: 0.00 62.90 0.00 0.00 0.00 45.26 - 6.22 0.00
TOGO
STATEMENT OF IFC’s
Held and Disbursed Portfolio
In Millions of US Dollars
Committed Disbursed
IFC IFC
FY Approval Company Loan Equity Quasi Partic. Loan Equity Quasi Partic.
Total portfolio: 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00
Approvals Pending Commitment
FY Approval Company Loan Equity Quasi Partic.
Total pending commitment: 0.00 0.00 0.00 0.00
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Annex 14: Country at a Glance
Togo EFA-FTI Catalytic Fund Grant
90
91
Annex 15: Map
Togo EFA-FTI Catalytic Fund Grant
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Additional Annex 16: Summary of the MEPSA School building strategy
Togo EFA-FTI Catalytic Fund Grant
(Translated from French)
1. Togo aims to achieve Universal Primary Education by 2020. It also intends to improve
quality and lower the student-teacher ratio to the level recommended by the Fast Track Initiative
indicative framework (1 teacher for 40 students). In order to achieve these goals, there is a need for
adding an average of 1060 new classrooms each year. The EFA-FTI project will be used to create
815 new classrooms over the next three years. Given the large volume of new school buildings
planned under the FTI and the need for even more classrooms to meet the goal of Universal
Primary Education, a new cost-effective and field-relevant strategy for school construction has
been developed to enhance and build capacity within the MEPSA for achieving these objectives.
2. During the preparation of the EFA- FTI Catalytic Fund project, the World Bank supported
the MEPSA in the development of its school construction strategy. An initial support mission led
by Serge Theunynck, senior expert on infrastructure, was conducted from May 11 to 16, 2009. The
aim of the mission was to assist the MEPSA in defining the strategy for its school construction
program. This was followed by a MEPSA delegation study mission to Benin with the aim of
learning and drawing inspiration from the experience of the National Community Driven
Development Project or «Projet National d’appui au Développement Conduit par la
Communauté» (PNDCC). These two missions made it possible to assess and identify both the
strengths and the shortcomings of the situation in Togo.
LESSONS LEARNED
3. The MEPSA has built no primary schools itself over the past four years (2006-2009).
Construction work was limited to 271 secondary school classrooms, or approximately 72
classrooms per year.
4. The challenge for the MEPSA is to become a major actor in its primary school construction
program. Taking into account its experience in secondary education, the rate of construction for
the future primary school program will correspond to four times that currently accomplished by the
MEPSA. To meet the technical and financial challenge of how best to scale-up at the lowest cost
the MEPSA will need to adopt a cost-effective strategy to achieve the largest possible number of
constructions given the resources available.
5. The Technical and Financial Partners’ (TFP) experience in this respect is valuable. Using
three different approaches, they have built around 2000 primary school classrooms over the period
2006-2009 (see table A16.1):
- The IsDB completed a 300-classroom program in 2009 using a National Competitive
Bidding (NCB) process;
- The AFD (MEPSA’s bilateral TFP) was responsible for 12% of total constructions, through
a delegation of contract management to an execution agency (AGETUR);
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- The other two multilateral TFPs (UNICEF and EU) carried out 18% of total constructions
between 2006 and 2009. To do so, they employed a very economical community approach.
Table A16.1: Distribution of primary school classroom built by Institutions/Projects:
Project Year Cumulative 2006-2009
2006 2007 2008 2009 Total % Avg/year
Government’s building projects 0 0% 0
Government domestic resources 1 0 0 0 0
Bilateral donors building projects 233 12% 58
AFD – ANST (Delegation to Ex. Agency) 3 100 133 233 58
AFD – EPTT (Delegation to Ex. Agency and to NGO) 3
Multi-lateral donors building projects 366 18% 92
UNICEF 4 33 33 8
IsDB (Islamic Development Bank) 5 300 300 75
EU (Project Adyse with NGO Aide et Action) 3 33 33 8
NGOs building projects 165 8% 41
Plan Togo 3 54 66 27 18 165 41
Multi-sectoral projects 1,224 62% 306
World Bank- PURP 2 54 54 54 54 216 54
EU- PPMR 3 252 252 252 252 1,008 252
Total 460 538 366 624 1,988 100% 497 1 Government has only built secondary schools during 2006-2009 (Source MEPSA 2009) 2 Source PDC, 3 Source AFD, 4 Source UNICEF, 5 Source IsDB
6. Of the three approaches, experience suggests that the community approach is by far the
most cost-effective for scaling up (see Table A16.2).
Table A16.2: Classroom Unit cost (per square meter –HO) according to different approaches
Mode of delegation
Construction Type Cost saving compared to
MEPSA centralized
approach Classroom
Improved
Apatam
FCFA/m2
All taxes
included,
HO
FCFA/m2
All taxes
included,
HO
Classroom Improved
Apatam
Centralized 121,300 73,700 -5% 0%
MEPSA Government Domestic Resources 115,600 73,700 0%
IsDB 127,000 -10%
Delegation to Execution Agency 90,700 22%
AFD – ANST (Delegation to Ex. Agency) 90,700 22%
Community-based 69,033 36,350 40% 51%
UNICEF 60,000 48%
EU (Project Adyse with NGO Aide et Action) N/A
Plan Togo 70,200
World Bank- PURP N/A
World Bank - PDC 36,350 51% EU- PPMR 76,900
Average of all approaches 93,678 55,025 19% 25%
Sources: same as table A16.1
7. Moreover, international experience shows that taking advantage of community capacities to
implement small classroom projects avoids the classical problem of limited absorption capacities.
This has proved true in a wide variety of countries, such as Benin, Senegal, Mali, Guinea and Côte
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d’Ivoire. Then, the community approach is not only the most cost effective but has proven success
internationally so is the preferred approach.
MAIN LINES OF THE STRATEGY
8. The MEPSA-managed school construction programs will use a single strategy. The TFPs
will be encouraged to follow this strategy as their projects are completed and renewed. This
strategy is detailed in the document of National Primary School Construction Strategy of the
MEPSA.
9. The new strategy includes redefining previously adopted school mapping norms,
construction design standards (blueprints) and planning criteria.. These will be applied
uniformly throughout the territory.
10. The new school construction strategy is based on the principle of a school construction
management delegation. This has the advantage of enabling the MEPSA time to concentrate on
the educational tasks at the heart of its mission, while remaining in control of its school mapping
and construction program.
11. There are two forms of delegation, depending upon the area:
- In rural areas, the delegation of school construction management will be assigned to the
communities (which we shall call the community approach).
- In urban areas, the delegation of school construction management will be assigned to an
execution agency.
12. The MEPSA is committed to refocus on its core functions: Within this framework, the
MEPSA will be responsible for the (i) definition and review of the national construction strategy,
(ii) definition and review of construction design standards, school mapping norms and planning
criteria, (iii) program financing, (iv) organization and management of the contract agreement with
the delegation, (v) coordination of all partners, and (vi) organization of follow-up, monitoring and
evaluation. It will also be responsible for defining and monitoring g) training arrangements at
grassroots level, (vii) capacity building, and (viii) communication mechanisms.
GENERAL PRINCIPLES OF IMPLEMENTATION
13. The implementation strategy is based on the following general principles:
Focus by the Ministry on core functions: Definition and review of the national construction
strategy, definition and revision of construction design standards, program financing,
organization and management of the contract agreement with the delegation, coordination of all
partners, organization of follow-up, monitoring and evaluation.
Delegation of the school construction management by the Ministry: The Ministry delegates the
school construction management either to specialized agencies in urban areas or to the village
communities in rural areas.
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Empowerment of benefiting communities in implementation in rural areas.
Transparency: Due to the many actors involved, transparency is to be the guiding principle of
program implementation. The principle of transparency covers all aspects, including that of the
transfer and management of funds by all stakeholders involved, without exception. It also
involves making all relevant technical and financial information available to the general public,
including information on procurement and project management.
Control: All actors involved in the strategy, whether within the Ministry or not, will have a
control function. Carried out in succession, these controls will ensure that the different stages of
the strategy are correctly performed. The principles of transparency and control are closely
related. Transparency ensures dissemination of the results of the controls and so their
effectiveness.
IMPLEMENTATION THROUGH DELEGATION OF THE SCHOOL CONSTRUCTION
MANAGEMENT TO EXECUTION AGENCIES
14. The urban construction model is made up of a block of 3 or 6 classrooms, on 1 or 2 levels
respectively, according to the standard plans supplied in the MEPSA’s National Primary School
Construction Strategy Document. When the block is built on a single level, the structure will be
designed to accommodate a possible future vertical extension. It will have a standard weatherproof
flat roof.
15. In urban areas, the MEPSA will delegate the management of the construction contracts for
engineering services, follow-up of work in progress, the construction work itself and the supply of
furniture. These agencies will be selected on a competitive basis by the central level, i.e. by the
MEPSA.
16. The execution agencies and DREs will follow the procedures and use the standard
documents (plans, contracts, procurement outlines, etc.) developed by the MEPSA.
17. The Inspectorates are to be involved in following up the execution of the program projects
in their area, in the same way as the relevant local authorities and the benefiting communities.
IMPLEMENTATION THROUGH DELEGATION OF THE SCHOOL CONSTRUCTION
MANAGEMENT TO THE COMMUNITIES
18. The architectural and technical choices for the rural construction model are based on the
following four principles: pedagogical effectiveness, minimum cost, technical feasibility by small
companies already established in the rural areas, and a durability of at least 30 years.
19. Construction will be implemented using a participatory and community approach in a
framework of devolution. Thus, the MEPSA will delegate the school construction management to
the beneficiary communities who will implement and manage their school construction projects.
These communities will be supported, monitored and controlled by different types of actors
directly from the MEPSA or recruited by the MEPSA.
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20. Transfer of responsibility from the MEPSA to the communities will be made by way of
Financing Agreements signed by the Inspectorate and each community concerned.
21. The COGEP (School Committee) is the most appropriate entity for assuming the missions
delegated to the community. The responsibilities to be assigned to this entity are the: (i)
implementation and management of school construction projects, (ii) setting up of a strategy for
the mobilization of resources for managing and maintaining school buildings and equipment, and
(iii) participation in the follow-up and evaluation system of the school construction projects as
relevant. The structure of the COGEP will be modified on account of its new responsibilities; this
entity will be called upon to include members of the Parent-Teacher Association and of the Village
Development Committee (CVD), as well as a representative of the traditional authorities.
22. In order to receive the grant payments for the school construction program, the COGEP
must open a bank account. This account should be opened in a bank or a microfinance institution
that is acceptable to the MEPSA.
23. The community, represented by the COGEP, will set up a four-person technical committee
for the school construction management, in order to facilitate implementation of the construction
project. It will be mandated to: (i) advertise procurement notification and organize bid evaluation
sessions, (ii) prepare the contracts for signature by the COGEP representative, (iii) keep a close
follow-up on the progress of work by the sub-contractors, (iv) prepare the necessary documents to
enable the COGEP make the contract payments, and (v) prepare the sessions to acknowledge
completion of works and delivery of supplies. This committee should take the gender aspect into
account and could also include someone living with a handicap, should the case arise.
24. The community approach is a three-way approach, implemented through: (i) management
training at grassroots level, (ii) a follow-up and control mechanism, (iii) and a far-reaching
communication and transparency mechanism.
25. In this process, the MEPSA is responsible for running and generally coordinating the
program as a whole. The MEPSA will exercise its responsibilities through the DPEE, the DREs
and the Inspectorates.
26. The management training and support mechanisms provide the communities with initial
capacity building and the necessary support during implementation to enable them acquire full
capacity to manage the construction work through hands-on experience. Capacity development
will be required at grassroots level for the following aspects: (i) procurement, (ii) financial
management, (iii) communication and transparency, (iv) monitoring and control, and (v)
maintenance of school buildings and equipment.
27. The follow-up mechanism is set up to ensure that the activities are correctly performed,
according to the procedures already established at central level by the MEPSA. It is a way of
checking that the communities are indeed managing the construction projects in compliance with
the set procedures, time schedules and norms. It involves verification and acceptance procedures as
well as the transmittal of information and reports. The follow-up concerns all actors involved in
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school construction, i.e. the different administrative levels of the MEPSA and the communities.
Monitoring and control will be carried out in succession as follows:
- The communities will be responsible for following up on the activities of the sub-
contractors (they sign a contract with a technical support contractor who certifies the work
is carried out)
- The Inspectorates will be responsible for following up on the activities of the communities,
and on training and support activities
- The DREs will be responsible for checking the application of norms and procedures, the
proper use of standard documents, and the effectiveness of training and support activities at
community level.
- The DPEE will be responsible for checking that the accepted procedures are respected at all
levels (DRE/Inspectorates/Communities) at each stage of the strategy. It will benefit from
the assistance of the EFA-FTI Project Coordination Unit.
- The ESP coordination bodies and the Strategic Construction Committee will be responsible
for (i) checking the effectiveness and efficiency of the implementation of the program as a
whole, (ii) ensuring the timely and periodical setting up of technical and financial audits,
post-procurement reviews and the beneficiary satisfaction survey, and (iii) proposing, as
necessary, any adjustments and/or change of direction.
28. The communication and transparency mechanism ensures that all actors are
accountable for managing the funds under their responsibility vis-à-vis all the other stakeholders,
the communities and public opinion. Transparency mechanisms will be set up at all levels.
Transparency consists of all essential data on program operations being known by all stakeholders,
including the general public. This device will ensure proper use of the funds and will constitute a
means of sanction in case of failure to reach the set goals.
CAPACITY BUILDING
29. The implementation of the present strategy should constitute the foundations for the
MEPSA’s overall construction program for the other levels of education (pre-school, secondary,
literacy). As a result, capacity building appears to be a critical factor for the MEPSA in terms of
sustainability and achievement of the ESP goals.
30. In order to implement its program, the MEPSA must develop the capacities of the DPEE
including:
- Capacity to develop and implement a monitoring and evaluation system;
- Capacity to develop and implement a training tool appropriate for a grassroots level;
- Capacity to develop and implement a communication strategy.
31. The capacities of the DAF will be developed in the following areas:
- Management of consultant contracts;
- Management and transfer of funds to the communities;
- General management of the program’s budget, involving numerous actors and decision-
makers.
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32. Support from external resources is scheduled during the initial period (2010-2013). This
will take the form of a Technical Construction Unit to be set up within the Project Coordination
Unit, to work in close collaboration with the DPEE and the DAF, which are both involved in the
construction process. This unit will also provide support through training and ad-hoc actions and
will be responsible for the (i) implementation of the «Capacity building and support to
communities» component, (ii) progressive transfer of responsibilities from members of the unit to
their counterparts, and (iii) training DREs and Inspectorates for their missions. To this effect, unit
experts will be responsible for providing support and transferring their skills to the appropriate
division. In addition, they will work closely with at least one DPEE counterpart appointed as
representative to the program, by the MEPSA.
OUTLINE OF RESPONSIBILITIES AND IMPLEMENTATION
33. Implementation of the new strategy, particularly for the community aspect, involves a
redeployment of the responsibilities and functional connections between the different departments
and divisions of the MEPSA. The organization charts and the Matrix of the Primary School
Construction Strategy (see MEPSA’s National Primary School Construction Strategy Document)
indicate the functional connections that exist between the different actors involved, as well as the
details of their missions and tasks.
34. The Project Coordination Unit’s presence for the duration of the 2010-2013 EFA-FTI
project has a provisional impact on the pattern of program responsibilities. Within the framework
of the EFA- FTI project, the Project Unit, and more particularly the Accounting and Management
Unit and the Technical Construction Unit, will be responsible for (i) managing the construction
program funds, (ii) carrying out the construction program’s «Capacity Building » component and
(iii) providing the DPEE with technical support on the other components of the construction
program, i.e. «Monitoring and Evaluation», and «Communication/Transparency ». In due course,
all the missions and responsibilities covered by the Project Unit will be taken over by the DPEE
and the DAF.
