World Bank Document · DFOMR Direction de la formation et de I 'organisation du monde rural (Directorate of Rural Training and Organization) DOB Direction de l 'orientation et des

Document of

The World Bank

FOR OFFICLAL USE ONLY

Report No. 14464

IMPLEMENTATION COMPLETION REPORT

BURKINA FASO

PRIMARY EDUCATION DEVELOPMENT PROJECT(EDUCATION III)

(CREDIT 1598-BUR)

MAY 4, 1995

Population and Human Resources Operations DivisionWest Central Africa DepartmentAfrica Region

This document has a restricted distribution and may be used by recipients only in the performance oftheir official duties. Its contents may not otherwise be disclosed without World Bank authorization.

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CURRENCY EQUIVALENTS(February 28, 1995)

Currency Unit CFAF

US$ = 515.40 CFAF

CFAF 1 million = US$1,943.63

SDR 1 US$1.49

US$1 = SDR.67

WEIGHTS AND MEASURES

Metric System

FISCAL YEAR OF BORROWER SCHOOL YEAR

January 1 - December 31 September - June

ABBREVIATIONS AND ACRONYMS

DFOMR Direction de la formation et de I 'organisation du monde rural (Directorate of RuralTraining and Organization)

DOB Direction de l 'orientation et des bourses (Guidance and Fellowships Directorate)DPE Direction de la planification de 1 'education (Educational Planning Directorate)DPR Educational Project DirectorateEDFISIMO World Bank Education Financial Simulation ModelENEP Ecole nationale des enseignants du primaire (National Teachers Training College)FJA Formation desjeunes agriculteurs (Youth Training Program)ICR Implementation Completion ReportIPB Institut pedagogique du Burkina (Pedagogical Institute of Burkina)MEBAM Ministere de I 'enseignement de base et de l 'alphahgtisation de masse (Ministry of Basic

Education and Mass Literacy)PIU Project Implementation UnitSAR Staff Appraisal ReportSDR Special Drawing RightsUPE Universal Primary Education

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IMPLEMENTATION COMPLETION REPORTBURKINA FASO

PRIMARY EDUCATION DEVELOPMENT PROJECT(Credit 1598-BUR)

PREFACE

This is the Implementation Completion Report (ICR) for the Primary EducationDevelopment Project (Education III) in Burkina Faso, for which Credit 1598-BUR wasapproved on May 21, 1985, in the amount of SDR 21.8 million (US$21.6 millionequivalent in 1985) and which became effective on November 18, 1985. The Credit wasclosed on March 31, 1994, 21 months behind schedule. It was disbursed up to the amountof SDR 20.4 million (US$27.6 equivalent in 1994), with the final disbursement in August18, 1994. The undisbursed amount of SDR 1.4 rnillion (US$2.0 million equivalent in1994) was canceled.

The initial completion report (PCR) was prepared by Atle Hetland of thePopulation and Human Resources Division of the former Sahelian Department (AF5PH),with additional substantive contributions by Djmalddine Rouag of the same division. Itwas reviewed by Djmalddine Rouag (Task Manager until the reorganization of the AfricaRegion) and Slaheddine Ben-Halima (AF5PH). The report was redrafted according tonew ICR guidelines and finalized by Makha Ndao and Ross Pfile (AF4PH), reviewed byWhitney Foster (AF4CO), Ian Porter, Division Chief (AF4PH), and Franz Kaps,Operations Adviser (AF4DR). The Borrower submitted its input to the ICR in a finalreport, dated March 1994. The Borrower's acceptance of the ICR was received in a letterdated February 28, 1995. Both of these documents can be found in the Appendixes of theICR.

Preparation of this ICR was begun during the Bank's final supervision/completionmnissions in February 1993 and March/April 1994. It is based on the Staff AppraisalReport, the Credit Agreement, supervision reports, correspondence between the Bank andthe Borrower, and other relevant records.



EVALUATION SUMMARY

1. Bank's Role in the Country and Sector. Burkina Faso remains one of theworld's poorest countries, with a GNP per capita estimated at US$240, and low socialindicators in primary school enrollment, adult literacy, access to health services, and lifeexpectancy (para. 1.1). The Bank's role in the country aims at enabling Burkina Faso toachieve sustainable economic growth with equity through support to critical actions inorder to alleviate long-term constraints on economic and social development and toreduce poverty. Until 1988, the economy of Burkina Faso enjoyed relatively goodgrowth. In 1989 and 1990, real GDP growth slowed to 1.7 percent per year on average.In 1991, the Government adopted a structural adjustment program which was supportedby IDA and the IMF. The corrective measures implemented under this programcontributed to a narrowing of the overall fiscal deficit and to the containment of thecurrent account deficit (para. 1.2). This structural adjustment program (SAL I) coupledwith the first PFP helped to reinforce the objectives of the Primary EducationDevelopment Project and better link it to the macro and sectoral reforms. In January1994, the Government decided, together with other countries of the CFA zone, to devaluethe CFA franc by 50 percent in foreign currency terms. IDA supported the Government'supdated medium-term structural program. Developments since the devaluation arebroadly satisfactory. Despite the progress made to date, much remains to be done in allsectors to overcome Burkina's landlocked location, very poor natural resourceendowment and the legacy of the country's past policies (para. 1.4).

2. The Bank's involvement in Burkina Faso's education sector started with the FirstEducation Project (Cr. 430-UV, signed in 1973, for US$2.85 million) which succeeded inproviding rural youth with basic literacy and agricultural skills through the Formation desjeunes agriculteurs (FJA). The Second Education Project (Cr. 956-UV, signed in 1979,for US$14.0 million) assisted in consolidating the FJA program, thereby making asignificant contribution to the productivity of communities and improving their livingconditions. However, the FJA system, which was planned with a view to developing alow-cost alternative to primary education, turned out to be the opposite. Thus, thePrimary Education Development Project (Education III) became the first to focus broadlyon primary education (para. 1.6).

3. Project Objectives. The main objective of the Primary Education DevelopmentProject (Education III), was the implementation of a financing strategy aimed at (a)accelerating the expansion of primary education, reducing primary education unit costs,and improving quality; and (b) developing capabilities in education planning,administration, and management, including controlling education costs (para. 2.1).

4. Project Description and Components. Under objective (a) the major projectcomponents included: (i) reorganization of training for primary school teachers andreclassification of these teachers at a lower category of the civil service; (ii) gradual

iireallocation of resources within the education sector; (iii) cost-efficient provision of about800,000 textbooks and teachers' guides and their distribution to primary schools; (iv)testing of low-cost, alternative primary school construction methods; and (v)implementation of a primary school building program, totaling 450 classrooms and 450teachers' houses in seven regions in northeastern Burkina Faso, and development of aprimary school maintenance and repair system. Under objective (b) the institutionaldevelopment program included components aimed at: (i) improving the planning,budgeting, cost control, and project coordination capacities in the Ministry of Education;(ii) improving cost-effectiveness in post-primary education; and (iii) improving the FJAsystem and harmonizing it with primary education (para. 2.2).

5. Credit Covenants and Special Agreements. Agreements with the Borrower(Burkina Faso) were reached on the following issues, namely, that Burkina Faso will (a)establish, not later than June 30, 1986, a National Commission to review ways toharmonize the systems of primary education and of FJA; and discuss with theAssociation, not later than June 30, 1987, the results of the review; (b) cause all staffhaving received training under the project to remain in their assignments for a period of atleast three years; (c) review with the Association, not later than April 30 of each year, theexpenditures and financing needs of the education sector; (d) furnish to the Associationnot later than December 31, 1985, a proposal for the financing and organization of themaintenance of primary schools; and (e) provide the Bank with semi-annual progressreports, audited annual accounts and auditor's reports, and finally, at completion, with aProject Completion Report (para. 2.3 and Table 9).

6. In addition to the above agreements, the following conditions of Crediteffectiveness were also agreed upon: (a) approval of a decree establishing the NationalPrimary Teachers College (ENEP) with acceptable requirements, and (b) recruitment ofENEP graduates at Category Cl of the Civil service and abrogation of the previous B2recruitment Category.

7. All the above conditions of Credit effectiveness were complied with by BurkinaFaso to the satisfaction of the Bank and the Credit was declared effective on November18, 1985.

8. Evaluation of Project Objectives. By the late 1960s, the task of developingbasic education throughout the country came to be seen as increasingly important inBurkina Faso. The Government chose the vehicle of non-formal, rural training (FJA) tocombine literacy training with the teaching of basic agricultural training. After severalyears, the Government came to realize that this alternative system is no substitute forwidespread primary education, mainly because of the non-replicability of the FJA systemon a large scale due to its considerable unit costs (para. 2.6). It is in this context that theGovernment requested IDA's assistance in financing a project to expand and improveprimary education. To clarify the overall project objectives a policy workshop was held inOctober 1983 using the Bank's Education Financial Simulation Model (EDFISIMO). Theproject's policy objectives and associated investment program were timely, appropriate,and in line with the Bank's education sector policies. Overall, the project was successful inmeeting its principal goals (paras. 3.1-3.7).

iiiIMPLEMENTATION EXPERIENCE AND RESULTS

9. Assessment of Project's Success and Sustainability. The main projectobjectives were met: (a) the overall gross enrollment ratio grew from 23.9 percent in1985 to 32.8 percent in 1993; (b) unit cost reduction was achieved in several fields, i.e.,cost reduction in primary school construction is estimated to be about 50 percent,textbook prices have been reduced in nominal terms by about 30 percent, and teacherswere trained for one year and recruited at a lower salary category; (c) the share of theeducation budget allocated to primary education grew markedly from 42.6 percent to 51.0percent in 1993; (d) availability of textbooks increased considerably (more than twice theproject target of 800,000); (e) the local communities' participation in schoolconstruction/maintenance developed well; (f) major progress was made in planning,administration, and overall cost-monitoring; and (g) progress was made in better use ofthe FJA network system.

10. Several factors contribute to sustainability, i.e., (a) means for unit costs reductionare in place and fully operational, (b) local communities' contributions have increased, (c)the capacity of the Ministry of National Education to produce low-cost textbooks wasstrengthened, (d) teacher training was reorganized and the lower entry level salary--Category Cl--is applicable to all new recruits, and (e) administration, planning, and cost-monitoring improved. In addition, the Government's significant resource allocation toeducation, and in particular to primary education, increased sustainability probability.Thus, the project's sustainability can be ranked as 'likely" However, in a poor country likeBurkina Faso, foreign assistance will be necessary for some time to come to furtherexpand enrollment and improve the quality of education (para. 3.7).

11. Summary of Costs. The total cost of the project (Table 7) was estimated atappraisal to be US$23.2 million equivalent (net of taxes and duties). IDA's contributionwas estimated at US$21.6 million and the Government's participation at US$1.6 million.Total disbursements of IDA's Credit at ICR preparation (US$27.6 million) were higherthan projected at appraisal due to changes in the US dollar/SDR exchange rate. Theactual Government contribution (US$1.2 million) was lower than foreseen at appraisalbecause the Government chose to involve local communities in school maintenance ratherthan using the Government budget to fund 55 percent of the costs under Category (4)(Periodic maintenance and repair of primary schools in Project Area) of the CreditAgreement. The estimated and actual disbursements are given in Table 4A.

12. Implementation Schedule. The project was timely and adequately prepared (para.3.10 and Table 3). Project start-up was delayed by 16 months (from June 1986 toOctober 1987) due to the political changes in Burkina Faso (para. 4.1). After a revisedprogram, which accommodated the new Government's concerns, was agreed upon theproject was able to start its normal implementation. The original closing date was June30,1992, but the Credit was not closed until March 31, 1994, after two extensions.Disbursements against commitments were made until August 18, 1994. An outstandingbalance of SDR 1.4 million (about US$2.0 million equivalent in August 1994) wascanceled at Credit closing.

iv13. Analysis of Key Factors Affecting Major Objectives. Two key issues werecentral in reaching the Project's objectives. These were: (a) securing adequate technicalcapacities of the main institutions responsible for resource use planning in the sector; and(b) the risk related to the limited experience in school construction and projectmanagement in the Ministry of National Education. A sizable staff training program forthe implementing agencies and the provision of specialist services in key areas helpedovercome these handicaps. The severe delays that occurred at the beginning of the projectwere mainly due to unforeseeable factors, i.e. political changes in the country. Thedisagreements mentioned above were addressed and solved to both the Bank's and theGovernment's satisfaction.

14. Assessment of the Bank's and the Borrower's Performance. The Bank'soverall performance was satisfactory and contributed to the achievement of most of theobjectives. The Bank's role can be divided into two phases, with the dividing line set byBurkina Faso's entrance into an adjustment program in 1991 (first year PFP and SAL I),reinforcing the priority placed on the Primary Education Development Project (EducationIII) objectives. The Borrower's performance was also satisfactory. In some areas, theBorrower performed particularly well, notably, the component concerning organizationand production of teaching materials. Table 1 provides a Summary Assessment for boththe Bank's and the Borrower's performance.

15. Assessment of the Project's Outcome. The Primary Education DevelopmentProject (Education III) can be classified as satisfactory in its effort to expand formalprimary education. The project made considerable progress in helping the Borrower toachieve major efficiency gains by reducing unit costs of primary education, whichcontributed to a significant expansion of enrollment at this level, and by improving overallmanagement of the education sector (paras. 3.13 and 3.14).

IMPORTANT FINDINGS OF PROJECT IMPLEMENTATION EXPERIENCE

16. The political changes in Burkina Faso had an important effect on project start-upand implementation. The new post-revolutionary Government wanted (a) to scrutinize theformer Government's project plans, (b) to ascertain that all project details were within thenew Government's strategy, and (c) to discuss with the Bank major changes in utilizationof the Credit. Although this project was the first to be implemented by the new Ministryof Primary Education (MEBAM), and minor implementation problems are all too commonin Bank operations, it was not expected to encounter such problems at such an early stage(para. 4.1).

17. Some further delays occurred, both in classroom construction/maintenance and inother more qualitative fields because of the relative complexity of the project, theimplementation of which required major participation of at least nine departments oragencies belonging to three different ministries. Delays which affected the classroomconstruction were primarily procurement delays which were mainly due to staff changes atthe PIU and included slow recruitment of technical assistance. Greater attention shouldhave been given to the institutional development needs and arrangements in projectimplementation (para. 4.2).

v

FUTURE OPERATIONS AND SUSTAINABILITY

18. The Primary Education Development Project (Education III) supported part of theGovernment's strategy for the education sector which aimed at increasing the level ofbasic education in the country and improving the quality of education at all levels.Because of the low primary school enrollment ratio, emphasis will continue to be placedupon expanding access to, and improving the quality of, primary education to raise thegeneral educational level of the population and thereby their productivity, and to facilitatethe introduction of improved technologies. Future operations will build directly on--andseek to further--the positive results of previous and ongoing investments in the sector,particularly in terms of cost reductions and quality improvements. Moreover, measuresaiming to further increase the involvement of communities in the provision of primaryeducation will be provided for, with a view to further improving girls' access andexpanding access to education of underserved population groups (para. 4.3). Support forpost-primary education will aim at improving the overall quality of general secondary,technical and vocational training, and higher education, and to help design and implementgood quality, low-cost training programs to meet basic technical skills requirements (para.4.4).

LESSONS FOR FUTURE PROJECTS IN THE SECTOR IN BURKINA FASO

19. A major lesson learned in this project is that project ownership should be welldeveloped and communications between the Bank and the Borrower, includingprofessional aspects of planning, accounting of commitments, and drawdown of proceeds,should be sufficiently well documented so that when major political changes in thegovernment occur, such changes will not unduly affect project implementation (para. 4.5).

20. A second lesson to be drawn from this project is the importance of paying moreattention to, and defining the roles and responsibilities of, the Government, localcommunities, and other contributors to primary education at project planning andimplementation stages. The depth and clarity of analyses at planning should be such thatas few misunderstandings as possible occur during implementation. This was generally thecase in this project. However, one case, notably the FJA system and its relation toordinary primary education, could have been analyzed more stringently and realisticallyduring project planning--without underestimating the FJA system's political/administrativecomplexity (para. 4.6).

21 The third lesson learned is that in countries in which the Government has to askfor community contributions, the system becomes more fragile and dependent first andforemost on usefulness and relevance to its user--otherwise contributions will bewithdrawn (para. 4.7).



PART I: PROJECT IMPLEMENTATION ASSESSMENT

L INTRODUCTION

A. Macroeconomic Setting.

1.1 Burkina Faso is a resource-poor, landlocked country in a transitional zone betweenthe Sudano-Guinean regions and the Sahel. Although fragile, soils are comparativelyfertile. The majority of Burkina Faso's population of roughly 10 million (nearly 90 percentrural), depends mainly on agriculture and stock raising. Population growth of more than 3percent per annum is creating severe pressure on arable land. Burkina Faso remains one ofthe world's poorest countries, with a GNP per capita estimated at US$240 in 1994, andwith low social indicators in primary school enrollment (estimated at 19 percent in 1993),adult literacy (13 percent), access to health services, and life expectancy (43 years).

1.2 In spite of the handicaps constraining its economic performance, in the 1980sBurkina Faso recorded a growth rate that was sufficient to slightly raise per capita incomeand consumption, as real GDP grew by 3.5 percent per year between 1980 and 1993.Year-to-year variations in growth were significant and depended mostly on the weatherand related agricultural and livestock production developments. Because 1991 was agood agricultural year and the private sector started to respond to reforms in the incentiveframework, the expansion of GDP in real terms reached 6.0 percent. In contrast,economic developments in 1992 and 1993 were, on the whole, disappointing, as externalpolitical factors and weak external demand combined with uneven rainfall slowed thegrowth of domestic output and income, worsened the public finance situation, andweakened the external position.

1.3 The Government adopted a structural adjustment program in 1991 supported byIDA and the IMF. The corrective measures implemented under the program, whichinitially focused on internal adjustment policies, have contributed to a narrowing of theoverall fiscal deficit and to the containment of the current account deficit. Taking intoaccount changes in the external environment, as well as economic and financialdevelopment in Burkina Faso, the Government recognized both the limitations of thepurely internal adjustment strategy to achieve the necessary depreciation of the realeffective exchange rate and the need to strengthen the ongoing structural reform program.Thus, the Government decided, together with the other countries of the CFA franc zone,to devalue the CFA franc by 50 percent in foreign currency terms effective January 12,1994, and it adopted an updated medium-term structural adjustment program (supportedby the IMF and IDA). Developments since the devaluation are broadly satisfactory.Inflation appears to have been contained within the projected range, and, as expected, the

2

Government was able to lift the price controls that had been reimposed after thedevaluation. There is also strong evidence of a rebound in export and import substitutionsectors, such as textiles, soap, and cycles. Despite the progress made to date, muchremains to be done to overcome the severe structural and institutional problems left as alegacy of the country's past policies.

B. Bank's Role in the Sector.

1.4 The Bank's involvement in Burkina Faso's education sector started with the FirstEducation Project (Cr. 430-UV, signed in 1973, for US$2.85 million), which closed in1980. This project was designed to (a) support informal sector training by providing ruralyouth with basic literacy and agriculture skills and training agricultural managers; and (b)strengthen the teaching of science in secondary schools. The Second Education Project(Cr. 956-UV, signed in 1979, for US$14.0 million), which closed in 1986, continuedsupport for the rural youth training program (Formation des jeunes agriculteurs- FJA)that started under the first project, including in-service training for agricultural projectmanagers and public works personnel. Table 2 provides related IDA credits in the sector.

1.5 The First Education Project succeeded in providing rural youth with basic literacyand agricultural skills as a second-chance alternative to the traditional primary school, buthad limited success in encouraging rural youth to stay on the land and become moreproductive. The Second Education Project assisted in consolidating the rural youthtraining program, thereby making a significant contribution to the productivity ofcommunities and improving their living conditions. However, the FJA system, which wasplanned with a view to developing a low-cost alternative to primary education, turned outto be the opposite (para. 2.6). Also, attainment of the project objectives was hampered byconflicting views of the FJA program as skill training for rural youth, on the one hand, andas an alternative to basic education for rural children on the other; in particular parentsheld the former view and wanted formal primary education for their children. Thus, thePrimary Education Development Project (Education III) became the first to focus broadlyon primary education because of the non-replicability of the FJA system on a large scaledue to considerable unit costs.

H. PROJECT OBJECTIVES

A. Original Project Objectives.

2.1 The main objective of the Primary Education Development Project (Education III)(Cr. 1598-BUR, signed in June 1985, for US$21.6 million), was the implementation of afinancing strategy aimed at (a) accelerating the expansion of primary education, reducingprimary education unit costs, and improving quality; and (b) developing capabilities inplanning, administration, and management, including controlling education costs. Giventhe limited number of pupils who were receiving training through the rural youth trainingsystem (about 15,000 students yearly), and the extremely low enrollment ratio in primary

3

education (estimated at 19 percent in 1983), it was necessary to put more emphasis oneducational expansion.

B. Project Description and Components.

2.2 The project components consisted of the following: (a) primary educationexpansion, unit cost reduction, and quality improvement including (i) restructuring ofteacher training, including upgrading and expanding the facilities at the National TeachersTraining College (ENEP), training fellowships for ENEP staff, improving the systems fortrainees' selection and promotion of primary school teachers, and lowering entry levelsalary for instituteurs-adjoints; (ii) developing, procuring, and distributing textbooks,improving buildings, and upgrading staff at the Pedagogical Institute of Burkina (IPB),reorganizing IPB's production department, strengthening textbook distribution and storagefacilities at the Ministry of National Education, and producing, adapting, and importingabout 800,000 textbooks and teachers' guides and distributing them to primary schools;(iii) constructing and maintaining primary schools: this program included testing ofalternative construction methods (about 30 classrooms built under a pilot program);constructing, equipping, and furnishing of about 450 classrooms and about 450 teachers'houses and associated facilities in the project target area in seven regions in northeasternBurkina Faso; and developing and implementing a cost-efficient school maintenancesystem; (b) institutional development to (i) improve the primary and secondary educationalplanning capacity of the Educational Planning Directorate (DPE) through upgradinghuman resources competence, organizational set-up, and physical infrastructure; (ii)strengthen the capability of the Guidance and Fellowships Directorate (DOB) to managehigher education, develop a more differentiated fellowship policy and formulate a strategyfor post-primary educational development (inter alia, to increase the number of studentsbeing trained locally in place of costly overseas courses); (iii) improve the performance ofthe Directorate of Rural Training and Organization (DFOM) through upgrading physicalinfrastructure at central and regional levels and strengthening its capacity in preparing anddistributing teaching/learning materials, and future harmonizing of primary education andrural youth training; and (iv) strengthen physical and human resources of the EducationProject Directorate (DPR).

C. Credit Covenants and Special Agreements.

2.3 During Credit negotiations, the following agreements were reached, namely, thatthe Borrower will: (a) prior to December 31, 1986, issue a decree upgrading the primaryteachers promotion examination; (b) not later than June 30, 1986, reorganize the TeachingMaterials Production Department of the Pedagogical Institute of Burkina to establish anEditing Division and a Production Division with staffing in number and with qualificationssatisfactory to the Government and to IDA, (c) not later than December 31, 1985, prepareand submit to IDA a proposal for the financing and organization of periodic maintenanceand repair of primary schools; (d) define in a directive to be agreed upon with IDA and tobe issued no later than June 30, 1986, the level of government subsidies to privateeducation; and undertake with IDA, not later than April 30 of each year, an annual review

4

of the expenditures and financing needs of the education budget resources in favor of, oran increase in funds allocated to, primary education; (e) establish, not later than June 30,1986, a National Commission under the auspices of the Minister of Agriculture andLivestock to review ways to harmonize the systems of primary education and of ruralyouth training, taking into account the new objectives assigned to the Directorate of RuralTraining and Organization; and discuss with IDA, not later than June 30, 1987, the resultsof the above-mentioned review; (f) cause all staff having received training abroad financedunder the project to remain in their assignments for a period of at least three yearsfollowing the completion of training; (g) carry out, by means of an independent auditoracceptable to IDA, an annual audit of the project accounts, and forward to IDA for reviewcertified copies of the accounts and the auditor's report by September 30 of each year; and(h) submit to IDA semi-annual progress reports throughout the project implementationperiod, the first one being due by January 31, 1986, and submit within six months of theClosing Date (June 30, 1992) a final report summarizing the project outcomes andidentifying problems that would be relevant for future projects (Table 9).

2.4 In addition to the above agreements, the following conditions of Crediteffectiveness were also agreed upon: (a) approval of a decree establishing the NationalPrimary Teachers College (ENP) with acceptable requirements, and (b) recruitment ofENEP graduates at Category Cl of the Civil Service and abrogation of the previous B2recruitment Category.

2.5 All the above conditions of Credit effectiveness were complied with by BurkinaFaso to the satisfaction of the Bank and the Credit was declared effective on November18, 1985.

D. Evaluation of Project Objectives.

2.6 By the late 1960s, the task of developing basic education throughout the countrycame to be seen as increasingly important in Burkina Faso. The Government chose thevehicle of non-formal, rural training (FJA) to combine literacy training with the teaching ofbasic agricultural training. After several years, the Government came to realize that thisalternative system is no substitute for widespread primary education, mainly because of thenon-replicability of the FJA system on a large scale due to its considerable unit costsamounting to about US$143 per trainee year, versus US$38 in primary education. Inaddition, the Government realized that if the stagnation of the education sector, with itsextremely low literacy rate and primary school enrollment rate, were allowed to continue,the low level of human resources development would have serious detrimental effects onthe country's long-term economic growth prospects. It is in this context that theGovernment requested IDA's assistance in financing a project to expand and improveprimary education. To clarify the overall project objectives for different components anddevelop a consensus and common understanding--at the planning stage--among all partiesinvolved, a policy workshop was held in October 1983 using the Bank's EducationFinancial Simulation Model (EDFISIMO). Overall, the project was successful in meetingits principal goals (paras. 3.1-3.7).

5

m. IMPLEMENTATION EXPERIENCE AND RESULTS

A. Assessment of Project's Success and Sustainability.

3.1 Expanding primary education. The project's principal goal was to expand primaryeducation. During the period 1985-1993, the overall gross enrollment ratio grew from23.9 percent to 32.8 percent, total intake at first grade increased by 40 percent, and theshare of girls in total enrollment increased slightly (2 percent) (Table 8).

3.2 Reducing unit costs and improving quality. The efficiency gains are the following:the training period for new primary school teachers (institeurs-adjoints) was reduced toone year, and they have been reclassified at a lower salary level. The project wasinstrumental in changing the entry level of the instituteurs-adjoints in the civil service.Candidates were recruited with a lower-secondary school diploma and integrated into thecivil service at Category Cl instead of B2. Considering that the starting salaries of B2Category are 29 percent higher than of Cl Category, this change helped contain growth inthe teacher salary budget and reduce unit costs without affecting the quality of theteachers. The teacher:student ratio grew slightly from 1:57 to a high of 1:62 due to theintroduction of double-shift teaching (one teacher teaches one group of pupils in themorning and another in the afternoon) in urban areas and the expansion of multigradeteaching (one teacher teaching two or more grade levels in the same classroom) in ruralareas. Repetition rates were reduced from 19 percent to 16 percent on average in grades1-6. Classroom construction costs were reduced by almost 50 percent in current pricesbetween 1987 and 1990. As regards cost recovery, fellowships at the university levelwere cut by 27 percent in 1992. In addition the cost of textbooks was reduced by about30 percent.

3.3 The project supported reforms to improve the quality of education. A total of2,400 teachers were trained under the project. The Teacher Training College's curriculumwas revised to accommodate the new one-year course, and focused on professionalpractices. The availability of textbooks increased considerably: 1.6 million books and70,000 teachers' guides and books were distributed to primary schools since effectiveness--more than twice the project target of 800,000. However, the textbook renting schemewas not implemented and has been carried over to the new project (Cr. 2244-BUR). Theproceeds of the textbooks sold was deposited into an "Edition Fund" which, at closing,had a balance of CFAF 968 million.

3.4 Classroom construction. The program calling for the construction and equippingof 450 classrooms, 450 teachers' houses, 150 canteens and 150 double latrines in sevenprovinces was implemented.

6

3.5 Macro and sectoral impact. A major policy aspect of this project was to developgreater Government attention to, and understanding for, primary education in general andin the remote, rural areas in particular. The achievement of this goal can partly bedescribed quantitatively, i.e. in figures showing greater access to primary education andreallocation of Government resources from secondary and higher education to primaryeducation. During the period 1984-92, the share of the Government's education budgetallocated to primary education grew from 42.6 percent to 51.0 percent and the share ofeducation in the total budget grew slightly from 21.7 percent to 22.3 percent.

3.6 Planning, administration, and management. Some of the project's achievementsin this area include (a) regional school mapping surveys; (b) a sub-sector strategy forprimary education; (c) improved data collection; (d) implementation of efficientprocedures for hiring new teachers; (e) new criteria for fellowship awards at the secondaryand higher education levels; (f) local communities' participation in schoolconstruction/maintenance developed well; (g) major progress in planning, administrationand overall cost-monitoring; and (h) progress in better use of the network of rural youthtraining centers (the FJA system).

3.7 During the project's implementation period, major improvements in primaryeducation were made with a view to future sustainability. Several factors will contribute tosustainability, i.e., (a) means for unit costs reduction are now in place and fullyoperational, (b) local communities' contributions have increased, (c) the capacity of theMinistry of National Education to produce low-cost textbooks has been established, (d)teacher training has been reorganized and the lower entry level salary--Category Cl--isapplicable to all new recruits, and (e) administration, planning, and cost-monitoring haveimproved. In addition, the Government's significant resource allocation to education, andin particular to primary education, has increased sustainability probability. Thus, theproject's sustainability can be ranked as 'likely". However, in a poor country like BurkinaFaso, foreign assistance will continue for some time to be necessary to sustain the resultsachieved under this Credit, and, naturally, to further expand enrollment and improve thequality of education.

B. Summary of Costs.

3.8. The total cost of the project was estimated at appraisal to be US$23.2 millionequivalent (net of taxes and duties), with a foreign exchange component of US$14.9million (64 percent). Base cost estimates are in February 1985 prices. The breakdown ofthe project's costs into local and foreign currencies in term of project costs, is given inAnnex Table 7.

C. Financing Arrangements.

3.9 IDA's contribution was estimated at US$21.6 million and the Government'sparticipation at US$1.6 million, in the form of incremental staff salaries and counterpartcontributions for school maintenance and repair. Total disbursements of IDA's Credit at

7

ICR preparation (US$27.6 million) were higher than projected at appraisal due to changesin the US dollar/SDR exchange rate. The actual Government contribution (US$1.2million) was lower than foreseen at appraisal because the Government chose to involvelocal communities in school maintenance rather than using the Government budget to fund55 percent of the costs under Category (4) (Periodic maintenance and repair of primaryschools in Project Area) of the Credit Agreement. The estimated and actualdisbursements are given in Table 4A.

D. Implementation Schedule.

3.10 The project was timely and adequately prepared (Table 3 and Table 11). It startedwith a joint Bank/UNESCO education sector mission in December 1981 and a Bankmission in February 1982. A project brief was issued in March 1982 and an education sub-sector memorandum in December 1982. Staff from the UNESCO/Bank Co-operativeProgramme assisted the Government with project preparation during missions in June andNovember 1982. Pre-appraisal took place in October 1983, and the project brief wasupdated in March 1984. The IDA appraisal mission visited Burkina Faso in March 1984,Board approval was given in May 1985, and signing of the Development CreditAgreement took place in June 1985. The Credit effectiveness date was November 18,1985. Project start-up was slow due to the departure of two expatriate volunteers at theProject Implementation Unit and delays filling three technical positions. More importantwas the effect the political changes in Burkina Faso had on the project start-up andimplementation. The new Government began to explore and discuss with IDA majorchanges in utilization of the Credit; thus, implementation was delayed for 16 months (fromJune 1986 to October 1987). After a revised program which accommodated theGovernment's concerns was agreed upon, the project was able to start its normalimplementation. The original closing date was June 30,1992, but the Credit was notclosed until March 31, 1994, after two extensions. Disbursements against commitmentswere made until August 18, 1994. An outstanding balance of SDR 1.4 million (aboutUS$2.0 million equivalent in 1994) was canceled at Credit closing.

E. Analysis of Key Factors Affecting Major Objectives.

3.11 Two key issues were central in reaching the Project's objectives. These were: (a)securing adequate technical capacities of the main institutions responsible for resource useplanning in the sector; and (b) the risk related to the limited experience in schoolconstruction and project management in the Ministry of National Education. A sizablestaff training program for the implementing agencies and the provision of specialistservices in key areas helped overcome these handicaps (Table 12 and Table 13). Thesevere delays that occurred at the beginning of the project were mainly due tounforeseeable factors, i.e. political changes in the country resulting in a revised program(para. 3.10), which was addressed to both the Bank's and the Government's satisfaction.

8

F. Assessment of the Bank's and the Borrower's Performance.

3.12 Through the Primary Education Development Project (Education III), the Bankmade positive contributions to the general development of primary education in BurkinaFaso. The Bank's performance was satisfactory, and contributed to the achievement ofmost of the objectives initially established for the project. Despite delays in projectimplementation in certain fields at project start-up, the Borrower's performance was alsosatisfactory. In some areas, the Borrower performed particularly well, notably, thecomponent concerning organization and production of teaching materials. Table 1provides a Summary Assessment for both the Bank and the Borrower's performance.

G. Assessment of Project's Outcome.

3.13 The Primary Education Development Project (Education III) can be classified assatisfactory in its effort to expand formal primary education. The project madeconsiderable progress in helping the Borrower to achieve major efficiency gains byreducing unit costs of primary education, contributing to a significant expansion ofenrollment at this level, and by improving overall management of the education sector.

3.14 Critical Variances. As for achievement of the project development objectives, alow rating of "3 " was given during the first years, but was then upgraded to "1", and thenstabilized at "2" through project completion (Table 11). The two critical variances for thelow rating were: (a) very slow implementation rate during the two first years as explainedabove; and (b) delays in procurement, which primarily effected the school constructionprogram, and were mainly due to staff changes at the PIU (para. 4.2), including slowrecruitment of technical assistance.

IV. SUMMARY OF FINDINGS, FUTURE OPERATIONS AND KEYLESSONS LEARNED

A. Important Findings of Project Implementation Experience.

4.1. The most important reason for the delay in project start-up was the politicalchanges in Burkina Faso. The new Government wanted to (a) scrutinize the formerGovernment's project plans, (b) ascertain that all project details were within the newGovernment's strategy, and (c) discuss with the Bank major changes in utilization of theCredit. Reallocation included items such as a low cost school construction program, withmore community participation and local government funding (rather than financing fromthe Credit); exclusion of Credit funds for teachers' salaries; and increased localinvolvement in textbook production (which had been found uneconomical duringappraisal). Although this project was the first to be implemented by the Ministry ofNational Education, and minor implementation problems are all too common in Bankoperations, it was not expected to encounter such problems at such an early stage.

9

4.2 Due to a high project staff turnover rate between 1986 and 1993 (six individualssucceeded one another in the Project Director position), the project experienced delays inprocurement throughout the life of the project. Such delays, often associated withmanagement and staffing, are common, but should have become more rare during the lasttwo years of the project. Delays, both in classroom construction/ maintenance and inother more qualitative fields occurred because of the relative complexity of the project, theimplementation of which required major participation of at least nine departments oragencies belonging to three different ministries. However, the first phase procedure ofallocating funds in tranches which were managed by local governments was quicklyabandoned because management left much to be desired. During the second phase ofclassroom construction, the matching contribution for the school-construction programhad favorable results because the new procedures included entering into contracts withlocal community groups or Parents' Associations rather than allocating funds in tranchesto local governments. Greater attention ought to be given to the institutional developmentneeds and arrangements in project implementation.

B. Future Operations and Sustainability.

4.3 The Primary Education Development Project (Education III) supported part of theGovernment's strategy for the education sector which aimed at increasing the level ofbasic education in the country and improving the quality of education at all levels.Because of the low primary school enrollment ratio, emphasis will continue to be placedupon expanding access to, and improving the quality of, primary education to raise thegeneral educational level of the population and thereby their productivity, and to facilitatethe introduction of improved technologies. Future operations will build directly on--andseek to further--the positive results of previous and ongoing investments in the sector,particularly in terms of cost savings and quality improvements. Moreover, measuresaiming to further increase the involvement of communities in the provision of primaryeducation will be provided for with a view to further improving girls' access andexpanding access to education of underserved population groups. A major leap isexpected to be taken during the ongoing project, Cr. 2244-BUR, whose SAR estimates anenrollment rate of 40 percent in 1996/97, up from 31 percent in 1988/89. Maintaining andimproving community mobilization and participation will be crucial. Success willultimately be decided by the parents' and communities' assessment of how useful it is tosend their children to school, which again will depend on the relevance of the curriculum,and the links between the education system, the labor market, and national developmentneeds.

4.4 Support for post-primary education will aim at improving the overall quality ofgeneral secondary, technical and vocational training, and higher education, and to helpdesign and implement good quality, low-cost training programs to meet basic technicalskills requirements.

10

C. Lessons for Future Projects in the Sector in Burkina Faso.

4.5 Although it is impossible to foresee major political changes in a country, similar tothose that took place in Burkina Faso between project planning and implementation, asector project, particularly in primary education, should strive toward a very high degreeof consensus among all parties involved. A major lesson learned in this project is thatcommunications between the Bank and the Borrower, including professional aspects ofplanning, accounting of commitments, and drawdown of proceeds, should be sufficientlywell documented so that when changes in the Government or Bank personnel occur, suchchanges will not unduly affect project implementation.

4.6 A second lesson to be drawn from this project is the importance of paying moreattention to, and defining the roles and responsibilities of, the Government, localcommunities, and other contributors to primary education at project planning andimplementation stages. The depth and clarity of analyses at planning should be such thatas few misunderstandings as possible occur during implementation. This was generally thecase in this project. However, one case, notably the FJA system and its relation toordinary primary education, could have been analyzed more stringently and realisticallyduring project planning--without underestimating the FJA system's political/administrativecomplexity.

4.7 The third lesson learned is that in countries in which the Government has to ask forcommunity contributions, the system becomes more fragile and dependent first andforemost on usefulness and relevance to its user--otherwise contributions will bewithdrawn. The communities' often impressive participation in schoolconstruction/maintenance shows the demand for primary education.

I1

PART II: STATISTICAL ANNEXES

12

TABLE 1: SUMMARY OF ASSESSMENTS

NotA. Achievement of objectives Substantial Partial Negligible applicable

Macroeconomic Policies XSector policies XFinancial objectives XInstitutional development XPhysical objectives XPoverty reduction XGender concerns XOther social objectives XEnvironmental objectives XPublic sector management XPrivate sector development X

B. Project sustainability Likely Unlikely Uncertainx

HighlyC. Bank performance satisfactory Satisfactory Deficient

Identification XPreparation assistance XAppraisal XSupervision X

HighlyD. Borrower performance satisfactory Satisfactory Deficient

Preparation XImplementation XCovenant compliance X

Highly HighlyE. Assessment of outcome satisfactory Satisfactory Unsatisfactory unsatisfactory

x

13

TABLE 2: RELATED IDA CREDrrs

Credit title Purpose Year ofapproval Stat

Preceding onerations

Cr. 430-UVFirst Education Project FJA training centers 6/73 Closd 10/O0

for rural youth-science equiptnent forsec. schools

Cr. 956-UVSecond Education Project FJA training centers 10/79 Closed 12/85

for rural youth andpublic works trainingcenters

Operations under ICR review

Cr. 1598-BURPrimary Education Development Project To expand prim. ed., 6185 Closed 3/94

reduce unit costs andimprove ed. planning andadministration

Following oDerations

Cr. 2244-BURFourth Education Project Further dev. ofenrollment 7/91 Closing 6/97

and qual. of prim. ed..improve qual. of sec. ed.and strengthen insL capacitiesin the ed. sector.

TABLE 3: PROJECT TnIETABLE

Steps in project cycle Date planned Actua date

Identification (executive Project Summnary 7/81 12/81

Preparation 3/82 10/83

Appraisal Mission 4/84 3/84

Negotiations 4/85 4/85

Board Approval 5/85 5185

Credit signature 6/85 6/85

Credit Effectivenes 11185 11/85

Credit Closing 6/92 03/31/94

14

TABILE 4A: CREDrT DsBuRSsMEENTS: EsTudATED AND ACTUAL (SDR milION)

Bank FYcal Year and Fjtimated Cunulative Actual Cuunatdve Actual % of Actual % of TotalQuarter Estimated

1986I 0.2 00.0 0.00 0.0II 0.6 00.0 0.00 0.0III 1.1 0.76 03.5 3.7IV 1.6 0.76 03.5 3.7

1987I 2.3 0.76 3.5 3.7II 2.9 0.92 4.2 4.5HI 3.8 1.01 4.6 5.0IV 4.6 1.35 6.1 6.5

198819SS 5.4 1.76 8.1 8.6it 6.2 2.11 9.7 10.3III 7.3 2.46 11.3 12.1IV 8.3 2.90 13.1 14.0

19891 9.3 3.43 15.7 16.811 10.3 4.01 18.4 19.6III 11.4 4.57 21.0 22.4IV 12.6 4.91 22.5 24.0

1990I 13.7 5.35 24.5 26.211 14.6 6.22 28.6 30.4III 15.6 7.39 33.9 36.1IV 16.5 8.59 39.4 42.0

1991I 17.3 09.82 45.0 48.0II 18.0 10.32 47.3 50.4III 18.7 10.60 48.6 51.9IV 19.5 11.89 54.5 58.1

19921 20.1 12.88 59.1 63.011 20.7 13.25 60.8 64.8HI 21.2 14.28 65.5 69.8IV 21.8 14.72 67.5 72.0

1993I 15.81 72.5 77.3II 17.08 78.3 83.5III 17.81 81.7 87.1IV 18.20 83.5 89.0

19941 18.62 85.4 91.0II 19.57 89.7 95.7III 19.61 90.0 95.9IV 20.04 92.0 98.0

1995 20.44 94.0 100.0

Date of final disbursement: August, 18, 1994.

15

TABLE 4B: DISBURSEMF.NTS BY CATEGORY (IN USS MILLON)

Estimated at Appraisal Actual at ICR PercentagePreparation' Disbursed

Civil Works and Pro- 6.1 9.6 157.4fessional Fees

Matching Contributions 0.8 2.6 325.0

Furniture, Equipment and 1.3 3.1 238.5Vehicles

Periodic Maintenance and 0.4 .02 5.0Repair

Textbooks 1.4 3.9 278.6

Specialist Services and 3.5 5.9 168.6Fellowships

Salaries Project Staff 1.1 1.1 100.0

Operating Costs 1.6 1.4 87.5

Unallocated 5.3 .1 1.9

TOTAL 21.6 27.6 128.0

*Figures have been rounded.

16

TABLE 5: KEY INDICATORS FOR PROJECr IM NrEMNATON AND OPERATION

SUBJECT PROGRAM ACHIEVEMENTSA. Reduction of Pnmary Education Unit Costs

1. Rtructuring of Teacher Train.ng: (a) ENEP constructed at Loumbila: expected completion mid-1985; expected Construction completed in 1986, averageenrollment 340 students; enrollment 350.(b) Instihuteurs-adjoints candidates recruited from graduates with a lower-secondary Implementeddiploma and integrated into the civil service at Cl upon completion of training; and(c) Not later thn Dec. 31, 1986, measures will be put in place to upgrade the Not fully implemented because ofprimary teacher promotion exammation. opposition of the teacher's union.

2. Development, Procurement, and Distribution (a) Rehabilitation and Modification of the IPB library, conference room and fonner Implementedof Textbooks printing shop into offices for Editing Division and constuction of adjacent printing

shop and central warehouse, and rehabilitation of two regional warehouses;(b) Reorganization of the Teaching Materials Production Dept. not later than June Implemented30, 1986, by the establishment of an Editing Division and Production Division;(c) Assignment of seven staff to strengthen the distribution and storage capabilities Implementedof the School Equipment Division; and(d) Production of about 180,000 textbooks each for mathematics and science courses Total of 1.6 million textbooks and 70,000in Grades 3 to 6, about 155,000 textbooks for French courses in Grades I to 3 and teachers'guides produced-more than twiceabout 6,000 teachers' guides for each subject. Importation of about 260,000 the project's target.textbooks and about 8,500 teachers' guides in French for Grades I to 6. Distributionwill be handled in two phases, and transportation will be handled by the SchoolEquipment Division or private Contractors.

3. Primary School Construction and (a) Construction of about 30 classrooms and associated facilities through the pilot Implemented with 15 classroomsMaintenance school building program by DPR, which will be evaluated using criteria agreed with

IDA;(b) Matching contributions to complete local school building efforts and to meet the Implemented nith Community parlicipationcost of teachers' salaries, and and Parents'Associations(c) Construction of about 450 classrooms and teachers' houses in about 150 villages Implemented.by DPR.

17

B. Institutional Development1. DPE (a) Construction of an office building to be shared with DPR; Implemented

(b) Organization and staffing of DPE will be strengthened, in addition to currentresponsibilities, it will undertake to: (i) improve the reliability and timing of the (i) Small improvementanalysis and publication of educational statistics; (ii) complete a country-wide school (ii) Completion underwaymapping exercise for primary education; (iii) carry out a study on the introduction of (iii) Implementeda double-shift system for primary schools; (iv) conduct an organization and (iv) Implementedmanagement study of MEN; (v) define in a directive to be agreed upon with IDA and (v) Not implemented-Gov't aprovedto be issued not later than June 30, 1986 the level of Government subsidies to private subsidy to religious schoolseducation as a function of the number of students which the Government will enrollin private institutions; and (vi) have an annual review with IDA of the expenditures (vi) Implementedand financing needs of the education sector with a view to providing for areallocation of education budget resources in favor of, or an increase in fundsallocated to, the primary education system; and(c) Training will be provided for DPE staff in relevant fields. Implemented

2. DOB (a) In order to strengthen DOB's capability, it will (i) establish a modem data (i) Partially implementedstorage/retrieval system to expedite the administration of fellowships and permit amore differentiated fellowship policy, and (ii) undertake a study of national (ii) In progressmanpower needs and of post-primary educational development in collaboration withother ministries; and(b) Fellowships will be provided for the training of DOB staff in relevant fields. Implemented

3. DFOMR (a) Furniture and equipment will be provided for DFOMR offices; Implemented(b) Strengthening of DFOMR at the central and local levels sill include: (i) the (i) Partially implementedestablishment of a DFOMR management performance monitoring system; (ii) (ii) Implementedcontribution to the manpower study, (iii) the collection, analysis and publication of (iii) FJA system approach was changedstatistics on the FJA system and completion of an evaluation of rural training througha samnple of FJA centers; (iv) production and distribution of about 11 mrillion leaflets (iv) Not implemented due to change in (iii)and other learning materials and (v) the provision of information to the National (v) ImplementedCommission; and(c) Fellowships will be provided for the training of DFOMR staff in relevant fields. Partially implemented

(a) Construction of an office building to be shared with DPE, a central storage Implemented4. DPR facility, three regional branch offices and two regional storage points;

(b) Strengthening of DPR's capability by the organization of an Administration ImplementedDivision and a Construction and Development Division. Three regional offices with astaff of nine technicians for direct on-site supervision and supply management willbe attached to the Construction and Equipment Division;(c) Fellowships will be provided for the training of DPR staff in relevant fields. Implemented

18TABLE 6: STUDIES INCLUDED IN THE PROJECT

Topic/Puoe as Defined at StatusIYear Impact of StudyAppraal Implemented

1. Classroom construction

1. Burkina's habitat and architectural traditions 1989-90 Local building materials used

2. Evaluation of construction quality levels of the 150 schoolsbeing built under the project 1992 Not evaluated

H. Textbooks and Teachers Guides

3. Preparation ofteaching materials 1988

IIL lHigher Education

4. Development of a new student register and practical manage- 1991 Improved student managementment manuals

5. Managerial and administrativeimprovement plan for the Directorate Improved management 1990 Improved management and administrationand of Guidance and Fellowships

6. Student bursaries cost analysis 1990

Note: International consultants carried out study no. 1 and no. 3, whilethe others were carried out by national consultants.

IV. Educational Planning

The following studies are still in progress:

7. Analysis of documents of the five-year plan

8. Strategy and action plan for some secondary schools

9. Development progranmme for training and infrastructureconcerning middle and higher level staff(1991-96)

10. Socio-economic study of the University of Ouagadougou

11. Study of secondary school reform

19

TABLE 7: PROJECT COsTS AND FINANCING

A. Project Cosb (In USS minilon)

Appraisal Estimate (USSM)

Local ForeignItems costs costs Total

1. Reduction of Primary EducationUnit Costs

(a) Restructuring of Teacher Training 0.1 0.5 0.6

(b) Textbook Development, Procurementand Distribution 0.3 2.2 2.5

(c) Primary School Constuction Prgr. 4.5 4.7 9.2

Sub-total 4.9 7.4 12.3

2. Institutional Development

(a) Educational Planning 0.2 0.4 0.6

(b) Management of Higher 0.1 0.4 0.5Education

(c) Rural Youth Training 0.3 1.2 1.5(FJA) Management

(d) Project Management 0.4 2.1 2.5

Sub-total 1.0 4.1 5.1

Total base costs 5.9 11.5 17.4

Physical contingencies 0.3 0.7 1.0

Price contingencies 2.1 2.7 4.8

TOTAL PROJECT COSTS 83 14.9 23.2

B. Project Fnancing (USS mIllon)

Source Planned (Credit Agreement) Final

IDA 21.6 27.6

Government 1.6 1.2

TOTAL 23.2 28.8

Comments:

Eg. Co-financing was sought, but without materializing. The Netherlands financed bilaterally building construction for the National PrimaryTeachers College.

20TABLE 8: PROJECT RESULTS

Dtrect Beneflts

PRIMARY SCHOOL ENROLLMENT

TOTAL NEW INTAKE % GIRLS REPEATERS ENROLLMENTENROLLMENT FIRST GRADE RATIO

1985 351,807 72,782 37% 19% 23.9%

1993 598,580 104,877 39% 18% 32.8%

Physical Faclities

TARGET ACTUAL

OVERALL RURAL OVERALL RURAL

CLASSROOMS 450 450 480 480

CANTINES 150 150 138 138

BOREHOLES 150 150 138 13S

TEACHERS'HOUSES 450 450 381 381

Textbooks

TARGET ACTUAL

Textbooks 800,000 1,635,000

Teachers guides and books 70,000

Training

ACTUAL

Number over overseas fellowships 52

Number of local fellowships 22

Other training 91

Total manmonths under project 340

21TABLE 9: STATUS OF LEGAL COVENANTS

Agreement Section: t Covy. Status Original Revised Description ofCovenant Coment:Type Fulfillmnenrr: Fulfill-

Date ment

Cr. 1598-BUR 3.03 M, T OK, after 06.30.86 06.30.87 The Borrower shall: The Government has established a system acceptable to IDA tolong develop the FJA system to provide skills training for adults and to

delays (a) establish, no later than June 30, 1986 ,a link this with the establishment of cooperatives, rather than toNational Comnmission under the auspices of the harmonize the systems with primary education - a more effectiveMinister of Agriculture & Livestock, to review ways to harmonize the way to use FJA program. A national Commission has beensystems of primary education & rural youth training, taking into account the established to provide recommendations on ways to achieve this newnew objectives assigned to DMOFR; objective. The harmonization between the education and FJAand systern is included in the government-economic program 1994-96

and is underway.

Not 06.30.87 (b) discuss with the Association, no later than No longer relevant in view of above comments.fulfilled _June 30, 1987, the results ofthe review referred to in par. (a) above.

3.04 M Partially The Borrower shall cause all staffhaving received training abroad under the Stafftrained thus far have generally been appointed and for the mostfulfilled project to remain in their assignments for a period of at least three years part retained in the appropriate positions. However, it appears that

following the completion of their training some ofthe ple trained for textbook editing have retired.3.05 F Partially 04.30 of each The Borrower shall review with the association, no later than April 30 of The draft budget for 1994 planned under the PAS has been reviewed

fulfilled year each year, the expenditures and financing needs of the education sector with & allocations of resources found acceptable. 950 additional teachersa view to providing for a reallocation of education budget resources in favor were recruited for primary education as planned; the budget forof,s or an increase in funds allocated to, primary education. fellowships in Higher Education has been increased by about 10%

following the decrease of last year, but those for SecondaryEducation have decreased by 11%/*. However the devaluation willcertainly have an impact on the fellowship budget.

3.06 F,T Partially 12.31.85 The Borrower shall prepare & furmish to the Association, no later than Maintenance manuals for schools have been produced, & thefulfilled December 31, 1985, or such later date as the Association may agree, a distribution ofthese manuals to schools in project regions is in

proposal for the financing & organization of the periodic maintenance & progress. Seminars on school maintenance have also been held inrepair of primary schools &, promptly upon agreernent between the the various project areas.Borrower & the Association on such proposal, give effect thereto.

4.01 (b) F OK The Borrower shall have the accounts referred to in para. (a) of this Section, The audit report for FY92 was provided to IDA as well as for theincluding the Special Account for each fiscal year, audited, in accordance textbooks components. A social audit for DFONR has been carriedwith appropriate auditing principles consistently applied, by independent out & the first draft report submitted to IDAauditors acceptable to the Association, and furnish to the Associationcertified copy ofthe audit report.

Sched. 4 T Not The Borrower shall, no later than December 31, 1986, put into effect The issue remains "Pending "because the government is reluctant toPara. A, fulfilled measures agreed upon with the Association to upgrade the primary raise it with teacher's trade union until a stable political environmentI(c) education teacher promotion examination by introducing general subjects. is established. Not critical for fulfilling objective.Sched. 4 M OK 06.30.86 The Teaching Materials Production Department of IPB will be organized no The editing division has been established & is operating effectively.Para. A, later than June 30, 1986, by the establishment of an Editing Division with a2(b) technical staffin numbers & with qualifications satisfactory to the Borrower

I & to the Association.

Sched. 4 F Partially 06.30.86 Define in a directive to be agreed upon with the Association & issued no The government enrolls students mainly in the religious schools toPara B, fulfilled later than June 30, 1986, the level of Govermment subsidies to private which it provides a subsidy.I (bXv) education as a function of the number of students which the Government will

enroll in private institutions

M = Managerial; T = Technical; F = Financial

22

TABLE 10: BANK RESOURCES: STAFF INPUTS(STAFFWEEKS)

Stage of project cycle 1983 1984 1985 1986 1987 1988 1989 1990 1991 1992 1993 1994 TOTAL

Through Appraisal 52.4 36.8 89.2

Appraisal through 37.9 36.4 74.3Board Approval

Board Approval 12.1 12.1through Effectiveness

Supervision 2.6 20.4 8.8 6.4 8.9 12.2 12.2 23.5 27.0 14.0 136.0

Completion 8.4 8.4

GRAND TOTAL 52.4 74.7 51.1 20.4 8.8 6.4 8.9 12.2 12.2 23.5 27.0 22.4 320.0IL ---------------------------- =

23TABLE 11: BANK RESOURCES: MISSIONS

Stage of project cycle Month/year No. of Days in field Specialized staff skills repre- Performance rating a\ Types ofpersons sented problems

Implementa- Developmenttion status objectives

THROUGH APPRAISAL

FY83 6/82 2 7 GE,A _FY83 10/82 4 5 GE,A,E,Tx/CFY83 1-2/83 4 12 GE,A,E,Tx/CFY83 3/83 1 1 GE _FY83 5/83 1 7 GE _

FY84 10/83 1 18 GE _

APPRAISAL THROUGHBOARD APPROVAL

FY 84 Appraisal 3/84 5 12 GE,E,A/C,TE/C,Tx/FY 85 7/84 1 2 GEFY 85 3/85 1 6 GE

BOARD APPROVALTHIROUGH EFFECTIVENESS

FY86 7/85 1 8 GEFY86 11/85 2 12 A,E/C _

SUPERVISION

FY86 4/86 2 5 EP,A 2 2

FY87 11/86 2 5 EP,A 3 3 M,OFY87 2187 2 7 EP,A 3 3 M,O

FY88 1-2/88 1 13 EP I I MFY88 4-5/88 1 1 8 EP I I M

FY89 8/88 1 14 EP/C (UNESCO) -FY89 10/88 3 13 EP,TE I I MFY89 2-3/89 2 27 EP,A -

FY90 4-5/90 1 14 EP I I M,T,OFY90 7/90 2 5 EP,A I I M,T,O

FY91 5-6/91 1 12 EP I I M,T,O

FY92 11/91 3 13 EP,A,Tx/C 2 1 M,T,OFY92 2/92 4 12 E,A,Tx,GE 3 2 M,T,O

FY93 7/92 5 15 E,A,O,O,E/C 2 2 M,T,OFY93 10-11/92 3 13 E,A,GE 2 2 M,T,OFY93 3/93 3 8 GE,GE,O 2 2 M,T,OFY93 5/93 2 7 GE,O 2 2 M,T,O

FY94 10/93 3 2 GE,O,E 2 2 M,T,OFY94 12/93 3 13 GE,O,E 2 2 M,T,OFY94 1/94 1 5 GE 2 2 M,T,OFY94 4/94 2 11 GE,O 2 2 M,T,0

a/Key to status as shown in Supervision Form 590: Rating from I (highest) to 4 (lowest).L Key to specialized staff skills: GE=General Educator; E=Economist; A=Architect; TE=Technical Educator (incl. Agric.Educator); Tx=Textbook Specialist; EP=EducationalPlanner; O=Operations Officer-, -/C=Consultant;clKey to problems as shown in Supervision Form 590: F=Financial; M=Managerial; T=Technical; O=Other.Note: Most missions also included supervision of preceding education project, and preparation of following project. On average, it is estimated that 1/3 of time spent in field, wasactually used for work on other projects than the one being reviewing.

24

TABLE 12: TECHNICAL AssISTANCE FiNANCED BY THE PROJECT(PLANNED AND ACTUAL)

Planned at Apprisal Actual Duration Conmnents

Specialist Services

A. International Staff 216 marnonths Long-term experts, I year or more

B. International Consultants 41 manmonths Short-term experts, from I week to 4months

C. National Consultants 17 manmonths

TOTAL 209.5 manmonths 274 manmonths In four cases, duration of contracts was notindicated and could therefore not beincluded in the table

TABLE 13: TRAINING OF PERSONNEL FINANCED BY THE PROJECT

Type of Training Planned at Apprasal Actual Duration No. of Penons Conmnentstrained

402 manmonths

1. Textbook component 111 manmonths 19 All courses were overseas and lasted for2-12 months

2. Educational Planning 142 manmonths 33 112 months were for courses overseas,28 for courses/tours to other Africancountries and 2 months locally, notablythe computer training for 8 pers.

3. Guidance and Fellowships 25.5 manmonths 12 Except for two 8-months and one 4-Directorate month courses, the other fellowships

were short study tours. All but 5 fellow-shipmonths were used in Burkina orother African countries

4. National Primary Teachers 61.5 manmonths 10 All courses, lasting 3-10 months, wereCollege over-overseas. Three 2-week study tours

were to other African countries.

TOTAL 340 manronths 74

APPENDIXES

A: Missions' Aide-memoiresB: Borrower's Contribution to the ICRC: Map

Section l(b)

8 Fdvrier 1993

BURKINA FASO

Troisieme et Quatrieme Projet Education(Cr. 1598-BUR et Cr. 2244-BUR)

Mission de Supervision

1. Une Mission de la Banque Mondiale dirigee, par Mr. D. Rouag (Chef de mission), Composdede MM. S. Benhalima (Architecte), P. Lauvas (Educateur) et Mr. Zymelman (Economiste) a visite leBurkina Faso du ler au 8 Fevrier 1993. L'objet de la mission etait essentiellement de proc6der I lasupervision du Troisieme et du Quatrieme Projet Education et d'entamer les discussions sur undventuel Cinquirnie Projet axd sur 1'enseignement superieur. Cette mission sera continuee du 9 au 24Fevrier 1993, par Mr. Lauvas auquel se joindra I partir du 11 Fevrier, Mme. J. Lamoure,(consultante, specialiste de l'enseignement superieur) qui auront I mener une premier examen del'enseignement superieur, en cerner les principaux problemes et elaborer les termes de referencespour les etudes plus approfondies eventuellement necessaires. La mission remercie 1'ensemble desresponsables rencontres pour la chaleur de l'accueil et l'aide qui lui ont ete fournies durant sonsejour.

Troisieme Proiet Education

2. Ce projet, qui devait etre clos au 30 Juin 1993, sera prolonge pour une seconde fois, de 6mois, soit au 31 Decembre 1993, et cela, en vue de completer les constructions de classes primairesen cours, dont l'achevement est prevu pour le 30 Septembre 1993. Une demande I cet effet devra etreadressee I l'IDA avant la mi-Mars 1993. La mission a precise I la Direction des Projets, que lescontrats resultants des appels d'offres en cours ou prevus devrait etre signees au plus tard le 30 Juin.Bien que deux autres missions soient encore prevues avant la nouvelle date de cloture, la mission adiscute avec les responsables de la DPE, les modalites et contenus du rapport d'achevement du Projet,et en particulier, la preparation de sa partie II relevant du gouvernement.

(a). Les aspects administration et gestior

3. Direction des Projets de l'Education (DPE). Depuis la dernibre mission le journal desengagements a ete etabli; l'inventaire de tous les marches et lettres de commandes, passes depuis1986, a ete fait. Les totaux par categories de depenses et par composante du projet sont maintenantdisponibles et fiables; et l'inventaire des acquisitions depuis le dEbut du projet est disponible; II resteencore I definir les valeurs d'acquisitions et les valeurs comptables. Ces derniers devront etre achevesau plus tard le 31 Mars 1993. Par ailleurs, le cabinet SOFIDEC a repris ses activites dont l'objectifest d'etablir un nouveau rapport d'audit des comptes du projet au 31 Decembre 1991 et au 30 Juin1992. Cette mission fait suite aux remarques de la Banque sur le rapport fourni precedemment par cecabinet. Compte tenu du fait que pratiquement tout le travail doit etre refait de maniere approfondie,et suite I la demande en ce sens de la DPE et de l'auditeur, la mission a acceptE le report de la dateremise du rapport du 31 Janvier au 25 Fevrier 1993. Par ailleurs, le necessaire doit 6tre fait (lettre

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d'invitation I soumettre a l'IDA et deja demande dans notre telex du 15 Ddcembre 1992) pour lerecrutement dans les meilleurs delais de I'auditeur qui sera charge de verifier les comptes du projet au31/12/92. En tout etat ile cause, le rapport devra atre adresse a l'IDA au plus tard le 30 Juin 1993.Des informations plus d4tailles sur ces aspects sont donnes en Annexe 1.

4. Statistigues et planification (MEBAM). Statistigues. Au 8 Fevrier 1993, les questionnaires decollecte des statistiques de l'enseignement primaire - plus compliques que necessaire - n'etaient pasencore revenus. Par ailleurs la periode de collecte de ces informations ne correspond pas a la periodede stabilisation des differents effectifs du systeme. La consequence etant des ecarts certains parrapport I la realite des effectifs une fois stabilises (para. 19). La mission avait deja suggere qu'unconsultant soit recrute pour la revue: du questionnaire utilise; des circuits de transmission desdocuments pour en avancer la disponibilite en relation avec les mesures d'amelioration de lapreparation de la rentree scolaire; du type de verification a mener pour en accroltre la fiabilite, et desbesoins de formation qui en ddcoulerait. La presente mission reitere la suggestion deja faite. Etdsur les depenses dducatives des parents. Cette etude, confide a l'lREDU, et dont il reste a traiter etanalyser les donnees devrait pouvoir etre complete des que possible et au plus tard fin Mai 1993.Etude sur l'organisation et gestion du MEBAM. Les termes de refdrences proposes seront 6tudies parla mission et feront l'objet d'une communication ulterieure. II en est de meme pour les termes dereference pour l'etude du secteur de l'education de base dont il semble que le temps necessaire pourla realiser et l'eventail des competences I cet effet semblent etre sous estimes. Seminaire sur lesvroblemes gualitatifs de l'enseignement. La DEP/MEBAM se proposait d'organiser, mi-Fdvrier, unseminaire regroupant les principaux intervenants dans les aspects qualitatifs de l'enseignement. Ledocument de base de cette rencontre etant l'etude sur les ddterminants de la qualite menees en 1991avec le concours de l'IREDU. La mission a rappele qu'une etude sectorielle sur les aspects qualitatiftde l'enseignement primaire Burkinabe a etc menee en 1991/92 par la Banque Mondiale. 11 a eteconvenu que, parallelement au report de la date du sdminaire, I'IDA procederait au plus tot I latraduction de cette etude et sa mise I la disposition du MEBAM pour revue et discussions de sesresultats et propositions lors du seminaire.............

5. Direction de l'Orientation et des Bourses (MESSRS). L'organisation du fichier des boursiers del'enseignement superieur, son informatisation ulterieure, et la mise en place des modalites de suivi desnouvelles normes en liaison avec le futur systeme d'information de gestion de l'Universite, ont faitl'objet de discussions avec la DOB/MESSRS. Le programme pour la premiere phase a recu une nonobjection de l'IDA, L'exdcution devrait commencer au plus tot. Par ailleurs, concernant l'acquisitiondes livres et du materiel de reprographie pour la bibliotheque de l'universite, la mission a explicite IMr. Ie Recteur, les procedures I suivre (deja expliqud dans un prdcedemment dans un tdlex) et lesattributions de la Direction du Projet dans ce domaine.

(b). Les aspects 2edagogigues

6. Manuels scolaires. La couverture actuelle des disciplines aux differents niveaux del'enseignement primaire est la suivante: pour le frangais, les cinq premiers niveaux sont couverts, lelivre pour la cinquieme venant d'etre receptionne. Le livre pour la sixieme annee a ete elabore parI'IPB, avant l'appel d'offres pour son edition eventuelle, il devra etre soumis pour evaluation, a laCommission de Publications des livres scolaires prevue dans le Quatrieme Projet Education. Parailleurs les livres de calcul, d'histoire et de sciences d'observations pour la 3eme annee sontdisponibles. Au total, 1,216,274 manuels ont etc achetes ou edites/imprimes, dont environ 70% pourcent avait ete vendus I la date de la mission. Les livres continuent d'etre vendues au prix de moyende 725 FCFA (le prix moyen I l'achat, rendu I Ouagadougou, est de 530 FCFA), et celacontrairement I ce qui dtait initialement prevu, soit leur location. Depuis les reconunandations de la

derniere mission, un arretd portant sur les modalites d'application de la location des manuels scolairesdans les ecoles primaires parallelement a leur vente, a ete pris (No 92-103/ MEBAM/SG/DAAF Du 8Decembre 1993. Une esperimentation de la location, dans 30 ecoles reparties dans les cinq plusgrandes villes du pays 4 ete lancee cette annde. La valeur des manuels en stocks au 31.01.1993 etaitde 221,169,355 millioks FCFA. Les montants des ventes, versds au Fonds de I'Edition etait de 651millions de FCFA. Toutefois, des fonds restent encore dds par le FASO YAAR (environ 52 millionsFCFA) ainsi que par les inspections.

7. Soutien pDdagogigue aux maitres du primaire. Le projet prevoyait que les inspecteurs devaitdans le cadre de leurs fonctions contribuer, par l'organisation de journdes pedagogiques et des visitesde conseils aux mattres les moins qualifies particulierement ceux du SND, I l'amelioration del'enseignement. Par suite de la reorganisation de l'administration de l'enseignement au niveauregional, les inspecteurs ont davantage ete pris par leurs taches administratives et d'inspections audetriment du soutien pedagogique proprement dit, qui a ete de plus en plus confie aux conseillerspedagogiques (CPs). A cet effet, ces derniers, sont appeles I se ddplacer sans toutefois en avoir lesmoyens. La derniere mission avait donna un avis de non objection a la dotation des CPs demobylettes sous reserve que le nombre de visites annuelles de conseils I mener (standards), la grilled'observation et de conseils aux maitres ainsi que'les modalites pratiques de suivi de la mise enoeuvre des deux points pr6c6dents par l'administration centrale soient precisees dans un projet detexte d'application. Un document tres general sur ces aspects a ete produit par la Direction del'Enseignement de Base (DEB), auquel toutefois, il manque les standards, la grille et le projet de texted'application. La mission a convenu avec la DEB que le texte et ses annexes devront etre adressespour avis a l'IDA, au plus tard le 19 Fevrier 1993, et ce afin de permettre le lancement a temps del'AOI, en cours d'elaboration.

(c). Les aspects physigues

8. Genie Civil. mobilier et eguipement. Depuis la derniere mission (Novembre 1992), I'etatd'avancement des travaux de constructions de classes n'a pas ete significatif. Les activites ont surtoutportes sur l'etablissement d'un diagnostic detaille de la situation des differents chantiers, en vue dedefinir les mesures a prendre pour assurer l'achevement des travaux au plus tot et permettre la pridsede decision sur la date de cloture. les dossiers d'appel d'offres pour l'acquisition des mobiliers ettables bancs ont ete soumis a la mission et il a ete convenu que les dossiers seraient revus en utiisantles documents modbles discutes. Des informations detailles sur les differents aspects de cet element,sont donnees en Annexe 2.

Ouatrieme Proiet Education

(a). Cadre gdn6ral et mesures

9. Les aspects budgetaires (1993 . La part du secteur de l'education dans le budget de l'Etat adiminue par rapport a ce qu'elle etait en 1992. La part de l'enseignement primaire dans le budget dusecteur a dgalement diminue 3 l'interieur du budget de l'education, et cela, contrairement I la lettre eta 1'esprit du Quatrieme Projet Education. Le montant prevu pour les depenses sociales a diminudentre les budgets de 1992 et 1993, passant de 6,2 a 5,8 milliards de FCFA, toutefois comme lebudget total a diminue, il en resulte, en pourcentage, un leger accroissement de ces depenses, quidepassent maintenant les 30 %.

10. Recrutements annuels des enseignants du primaire. Le nombre total des enseignants duprimaire pour I'annee scolaire, 1992-93 n'est pas encore disponible. L'analyse de l'evolution des

I

Le 15 avrl 1994BLURKIA FASO

Troisi' e et Quatribme Projet Education(Cr. 1598-BUR at Cr. 22-4-BUR)

Projet propose sur I'Easeignement SupSrieur

AIDE-NMEMOIRE

1. Une mission de la Banque mondiale composee de NMNM. D. Rouag et NI. Zymelman(Ezonomist, consultant) a s6journd au Burkina Faso du 3 au 15 avril, 1994. L'objet de 1a mission Staitessentiellement: (a) de superviser les deux projets Education en cours et en particulier les aspects relatifsa la preparation de la rentree scolaire 1993/94; (b) de completer la collecte des informations necessairesau fonctionnement du modele Edfisimo de l'enseignement superieur et de discuter, avec les responsablesde ce niveau, de leurs hypotheses de developpement de l'universite et leurs effets et, (c) de discuter del'Ntat d'avancement de la preparation du projet de consolidation de l'enseignement superieur et ducalendrier de la mission pour sa pre-evaluation. La mission remercie S.E. Mme Alice Tiendrebeogo,Mlinistre de l'enseignement de base et de l'alphabdtisation de masse, S.E.M. Joseph Kabore, Ministre destravaux publics, de l'urbanisme et de l'habitat; M.A.Traore, Recteur de l'Universitd de Ouagadougouet M. B. Sirima, secretaire executif du PAS, ainsi que l'ensemble des responsables rencontres duMNEBAM et du MESSRS, pour la disponibilite et l'aide qui lui oat Etd accordees durant sa visite.

2. Au cours de son sejour, la mission a Egalement eu I rencontrer et discuter des aspectssectoriels avec Mime Rima Salah, Representant resident de l'UNICEF et M. Louis Van Der Akker,Charge d'affaires de l'Ambassade Royale des Pays-bas. Elle a eu egalement l'occasion de participer I uner6union des donateurs sectoriels organiseo par la cooperation frangaise ainsi qu'a celle organisee par leRectorat de l'Universite de Ouagadougou dans le cadre des festivites du 20me anniversaire de sacreation, pour presenter son plan de developpement et les investissements prevus.

LE ClUATRItNfE PROJET EDUCATTON (CR. 244-BUR)

3. La mnission a rencontre, a sa demande, S.E.M. Joseph Kabore, Ministre des travaux publics, del'urbanisme et de l'habitat. L'objet de la rencontre a ete, pour M. Ie Ministre, l'occasion d'appelerl'attention de la mission sur les capacitds de son ddpartement a mener des travaux importants deconstructions, en particulier dans les domaines de la sante et de l'Education, de souligner la tendance versle monopole qui serait celui de Faso Bara si l'on n'y prenait garde, et que son ddpartement envisageaitla possibUite de creer des institutions du type Faso Bara. La mission a pris note de ces remarques,soulignant que ces derniers aspects ne relevaient pas de ses competences. Toutefois elle a suggdre ques'il dtait possible de faciiter les procedures de passations de marches (dans le sens de ce qui avait Eteoctroye au BPE au cours du Troisitme projet education pour les marches en dega d'un certain montant)ceci faciliterait certainement la tlche du BPE en matiere de genie civil.

4. Considerations 24n4rales. Lors de son sejour en octobre 1993, la mission avait suggdreau Bureau du Projet, 1'6laboraEion, en commun avec les differentes composantes, du programme de travailpour 'ann4e 1993-94, et cela a partir de ['exp4rience accumulde lors de la preparation relativementlaborieuse et trrs etalee dans le temps, de celui pour 1992-93. La mission qui considere cet aspect, etceux concernanc la preparation de la rentree scolaire, 1'elaboration du budget du MEBAM, la gestion dupersonnel, le renforzemenrt de la fonction information statistique et planification, etc. comme des aspectsfondamentaux du ddveloppement institutionael vise par le projet, ne peut que constater que ce programmede travail a'a pu etre mene a bien de maniere compr6hensive. De ce fait, et comme pour la derniureann4e scolaire, le progrimme annuel est developpe de manibre indgale avec toutes les consequences quien decoulent du point de vue des realisations. Le Quatrieme projet education, le seul maintenant en cours- effectif depuis le 3 janvier 1992 ot sa revue I mi-parcours est prevue pour octobre 1994 au plus tard -souffre d'un serieux retard dans sa mise en oeuvre et qu'i se doir de rarmaper. Ca retard se reflkre dansson niveau de deboursement qui s'eleve I DTS 755,904 sur un montant initial de DTS 17,800,000.Considerant le retard evoque ci-dessus ainsi que ceux qui le sont dans les paragraphes qui suivent, lamission fait de nouveau part de sa preoccupation quant aux problemes de gestion se posant au secteur,problemes qui devraient beneficier de I'arrention directe et soutenue des plus hauts responsables dusecteur.

5. Recomrnandaions: Concernant specifiquement la capacite de gestion du Bureau des Projets, ilserair necessaire avant le 15 juin 1994, de proceder, apres les consultations prevues avec l'MA, aurecrutement de l'administrateur-gestionnaire national de haut niveau, prevu et finance sur le Credit et qui,sur la base de termes de rdf4rence qui defnirait precisement ses responsabilitds, aiderair le directeur dansles aspects techniques de la gestion administrative, comptable et fmanciere (telex de l'IDA du 11novembre 1993). Par ailleurs, considerant que le Troisieme projet education ayant ete clOt le 31 mars1994, le personnel local recrute et remunere sur le Quatrieme projet doit etre stctement celui prevu dansce' dernier. Une liste de ce personnel devrait etre adressde I l'IDA au plus tard le 30 avril 1994parallblement aux CVs et descriptions des fonctions.

Le Ministere de 1'enseianement de base

1. Pr6paration de la rentree scolaire

6. Le recrutement des enseignants : Dans le cadre des mesures d'accompagnement decideesen commun apres la devaluation, il a ete prevu le recrutement de 2750 eleves-maltres et enseignants pourla rentree 1994-95 repartis comme suit: 750 eleves-maitres pour les ENEP de Loumbila et de Bobo-Dioulasso; 1100 nouveaux maltres pour definitivement remplacer les 1100 SNDs recrutes et formesannuellement; et enfin les 950 maitres normalement recrutes. Considerant les problemes rencontresjusqu'a present pour assurer le recrutement, l'impregnation pedagogique et I'affectation dans les&tablissements des nouveaux enseignants avant la rentree scolaire, les deux principaux ministeresinteresses ont essay6 de trouver les solutions n6cessaires. Leurs discussions ont abouti I : (i)I'krabiissement d'un seul exarnen au lieu des deux separes prevus pour les 6coles normales et lesrecrutements directs ; par ailleurs, il a ete retenu que la saisie informatique des rdsultats serait faite auniveau du NEBAM (DEC). A cet effet deux micro-ordinateurs seront achetds sur le credit qui flnanceraegalement la formation localement du personnel approprie; (ii) la determination du nombre total decandidats qui pourront tre retenus comme admissibles en fonction de l'ordre de merite et le nombre despostes I pourvoir. Compte tenu du nombre tres elev6 de candidats, ce systeme permettrait de ne retenirqu'un nombre reduit d'admissible mais toutefois 25% k 35 % supdrieur aux postes I pourvoir etperrnettrait, en consEquence, de reduire les delais de passation des epreuves orales et ecrites ; et (iii) dedemander aux candidats admissibles selon la nouvelle formule de se presenter pour les epreuves oraleset sportives avec le compldment du dossier administratif, de maniere I ce que les dossiers des admis

-3-

puissent atze craites et transmis au Ministere de la fonction publique et, de 1, au Ministere des financeset redu'Lre ainsi les delais de regularisation et de paiements qui actuellement sont de pres d'une anndeaorzs le recr-arement. LUenLsemble des mesures prdc6dentes s'inscrivent dans un calendrier qui, s'il &itpleinement, respect6 pourrait assurer la dispoaibi1ite de la liste des admis des le 15 aoat 1994, ce quipermettrait de mener l'impregnation pedagogique avant l'affection des nouveaux maitres dans les4ublissements. 11 devait revenir au secretariat du PAS de s'assurer que le calendrier est respecrt. 11devrair 4g31ement lui reveair, en etroite consultation avec le projet de modernisation de l'aminisnration,d'4largir les travaux par l'inclusion du miaistere des Finances en vue de deflnir un calendrier et prevoirles eng-aemets aD4essaires pour assurer, a une date a definir, le paiement des nouveaux enseignants.

7 . L'EN-EP de Bobo Dioulasso: Le document d'appel d'offres pour l'acquisition du mobilierde ['E.NEP en reference (finance par la Banque Islamique de Developpement) sera lanc6 au courant dumois d'avril 1994. U fauE esperer que ce mobilier, dont la mission de juin 1993 avait deji suggere dejade lancer l'appel d'offres, puisse atre reellement en place lors de la rentree d'octobre. Le directeur del'4cole a deja ete nomme et il est prevu que le reste du personnel soit affect6 dans le cadre du mouvementde juin-juilet 1994. 11 faut souligner que I'ENEP de LoumbUa continue, I ce jour, de souffrir du manquede personnel permanent, ce qui entraine une r6duction du nombre effectif d'heures d'enseignementsre-ues par les eleves-maitres qui s'ajoutent au retard de d6marrage de l'armde scolaire (duree de lapresente anmee scolaire: du 11 janvier au 18 juin 1994, ce qui est nettement insuffisant. Elle continueA souffrir egalement de l'absence d'un budget minimal gerd de maniere autonome et lui permettant der6pondre aux besoins quotidiens de fonctionnement et de maintenance.

8. La convention avec Faso Bara pour la construction de 100 complexes scolaires au niveau duprimaire a etd signde par l'ensemble des parties intdressdes. La convention pour la fourniture etl'installation du mobilier dans ces complexes par le meme Faso Bara a ete signde par le MEBAM et FasoBara et sa signature par le ministere du Plan et en cours.

2. Aspects edago2iques

9. La double vacation. Durant l'amnde scolaire 1993-94, 203 classes appliquent le regimede la double vacation. Malgre les discussions menees a cet effet lors des prdcedentes missions et la misea la disposition du MEBAM de l'information disponible sur ce type d'enseignement, les ndcessairesalldgements des programmes et des horaires, en particulier pour les besoins de la double vacation, n'ontpas ete mends avant la rentrde de 1993/94, mais semblent atre en cours. La consequence en est que leshoraires retenus pour la double vacation sont tres lourds pour les enseignants (44 heures/semaine), qui,il ne faut pas le sou.s-estimer, est un exercice tres eprouvant. Cette situation a mend aux protestationsjustifiees des enseignants aggravds par la non-fourniture des materiels didactiques prdvus et au paiement,tres en retard deja en 1992-93 et renouvele cette annde, des indemnitds prdvues - financdes par la CEEdans le cadre de son appui budgdeaire au gouvernement - cela par suite de leur non identification dansle budget de cette annde - et malgrd les correspondances a cet effet du MMBAM (letres No. 94-089 et94-0887 du 15 mars et du 5 avril 1994). Les enseignants expdrimentateurs de la double vacation, rEunisles 17, 24 et 28 fdvrier et les 2 et 4 mars 1994, ont menac6 lors de cette dernibre reunion, d'arreter1'experimentation jusqu'a la satisfaction de leurs revendications dont les plus importantes sont, il noussemble, celles enoncdes ci-dessus. Les autres (visites mddicales mensuelles et l'augmentation de leurindemnird, dtant des consequences des anomalies signaldes). Des discussions de la mission avec leresponsable sectoriel de la CEE, il s'avere que le paiement de ces indemnitds serait encore possible sielles etaient inscrites dans le budget, ce qui devrait pouvoir etre fait.

10. La mission attire I'attention sur l'importance de la double vacation comixe instrunentstrat4gique dans tout processus d'acceJeration de l'accs a l'enseignement primaire. Le but poursuividans ce domaine - commence a travers ce projet - et qui constituera un element essentiel desnouveaux projets envisages, sera de generaliser ce systmrne dans 1'enseignernent primaire et d'enfaire une modalite majeure d'enseignement dans le cadre de la strategie d'expansion acceleree. D'oui['importance de la creation et de la consolidation des conditions educationnelles et administ-ativeset financieres de cette exp6rimentation.

II. Recommandariors: S'agissanc de la survie d'un instrument strategique menace essentiellementpar des problemes de gestion, il est recommandd que tout soit fait pour que le m.iistere de['Enseignement de base et surtout celui des Finances puissent tres rapidement trouver une solutioa auxproblmes du paiement des indemnites des enseignants selon des procedures et une periodicite I definiret de s'assurer, par les textes necessaires, que la solution trouvee soit permanente. Par ailleurs, afind'aider au plan methodologique les resporsables pedagogiques concernes dans leur tlche d'allegementdes horaires et des prograrntnes, de definition de la strategie de communication et de mise en place etd'organisation de L'extension progressive de la double vacation, un consultant specialise pourrait etrerecrute de maniere a contribuer a la prdparation de cet aspect de la rentree prochaine.

12. Remargue: Lors de la seance de synthbse, des representants des maitres-experimentateurs ont6te invites sans en prevenir la mission qui, en tout etat de cause, considere leurs revendications justifides.La mission n'a pris conscience de leur presence que lorsque le representant I pris la parole pour soutenirla double vacation et regretter les retards de toutes sortes qui la menace. La mission avait dEja estimdequ'il na'tait pas de son ressort de rencontrer les maItres-expdrimentateurs, pour discuter de problemesde gestion administrative qui relevent du ministere. En consequence, elle estime qu'elle aurait dfl ttre aumoins informee de la presence du representant des maltres-expdrimentataurs lors de cette seance.

i3. Soutien 26dagogigue aux maitres sous-aualifi!s: Suite aux propositions faites par lamission en novembre 1992 relatives au renforcement du soutien apportd par les conseillers pddagogiquesaux maitres sous qualifies du primaire, et aux ddlais mis a ddfinir les standards de visites et les modalitesp6dagogiques et administratives y relatives (circulaire No 93-032 /MEBAMISG/DEB du 9 septembre1993) pr6alables au lancement de I'appel d'offres pour la dotation des conseillers en mobylettes pour leurdeplacement, il est maintenant ndcessaire, apres la clOture du Cr. 1598-BUR, de procdder I cet appeld'offres sur le Credit 2244-BUR.

14. Manuels Scolaires. La DAAF/MEBAM a remis I la mission le document de demanderelatif au programme du minist&re pour la mise en place progressive, I partir d'octobre 1994, d'unsysteme gdndralisd de pret des manuels scolaires au niveau du primaire. Ce programme qui prdvoit'introduction, des octobre prochain, du systeme dans environ 900 ecoles, se doit pour reussir de prdparer

des maintenant les conditions administratives, organisationnelles et physiques ainsi que l'acquisition desmanuels a cet effet. La mission souligne qu'il est possible de financer sur le projet, les etudes, lesconsultants et les formations ndcessaires. Par ailleurs, la mission a indiqud qu'elle fera tres bient6t partde ses commentaires sur le document d'appel d'offres relatif a ['edition du livre de calcul de la 4emeannee primaire.

i5. La mission rappelle que le Quatrieme projet prevoit la prise en compte dans les manuels, quiauront a etre ddveloppds, de la promotion de I'education sanitaire, nutritionnelle et environnementale enparriculier dans ceux de sciences d'observations. 11 prdvoit egalement ['elimination des stErEotypes relatifsaux filles dans tous les manuels finances. En outre, la mission appelle I'attention sur l'integration prevue,dans tous les documents didactiques a ddvelopper, des aspects relatifs a la facilitation du suivi et de

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I'4valuation de I'enseigernent par les maites. Par ai.leurs, la mission a discur4 avec la Direacioa den'tnstirur Pedagogique du Burkina des problemes de gestion et d'orgaaisarioa auxquels semble wafronts'Lastir't. E!le a fair part a la direction de l nlcessic de pr4parer des termes de r4f4rence pour une etude

da prccbere:s pos4s et des solutions possibles et de les soumertre I l'DA pour avis.

16. EY.arnz-ns !r 4valuation. Le program de e cravail discut4 avec la Direction des exameasea concours lors 4es r-cs missioLs a zornmenc4 I 3tre mis en oeuvre. I1 avaiE ete convenu que, dansur.e premiŽre phase. deux consultants seraient recur=s anna de definir I'approche m4thodologique de toutle processus d'4valuation, en particulier celui relarif aux objectifs vises pour le CEP et le developpementde tests normalises pour 1'4valuarion des acquis de la troisieme ann4e. Deux consultants, I'un local et1'autre exterieur, ont 4ce recrutes et ont elabore un plan d'action pour le developpement des instrumentsd'4valuaEion des ;onnaissances aux niveaux considerds du primaire. Le rapport vient d'etre acheve et seraadresse I I'IDA pour avis.

17. Actions: La formation de sp4cialistes nationaux, dont le d6marrage avait et convenupour janvier, devrait maintenant etre prevue I partir d'octobre 1994. U serait necessaire de procsder IVidentification des stagiaires et celle des centres de formation. A cet effet, le Bureau des projets educationpourrait apporter son aide dans ces domaines.

18. Erude sur la scolarisation des filles. Les enquetes sur le terrain sont maintenant acheveeset le trairement des donn4es est acruellement en cours, parallelement a l'etude des contenus des manuelss,olaires et a celle de la pr6sentaEion de la condition femnine. En l'absence du consultant national, lesresponsables de la cellule ont reporre a son retour l'information de Il'A sur la nouvelle date prevue pourI'achevement de l'4tude. I1 faut rappeler que cette etude avait commence avec du retard par suite denombreux changemenrs dans l'approche et dans les cotlts et que lors de la mission d'octobre 1993, la dateconvenue pour I'achevement du rapport etait le 31 mars 1994. La mission a confirme l'importance decerte 4tude comme base pour le ddveloppement d'un eventuel projet "expansion du primaire et de lascolarisation des filles et promotion des fenmmes".

19. Am_lioration de 1'4tat sanitaire at -- rit-nnel des 41~ves. Le Directeur de laDEB/INMBAM a &d change. La Direction de 1'enseignement de base a prepare un document synth6tisantson appr6ciation des problemes poses dans 1'ex6cution de certe composante et sa proposition de ce quisemble 4rre un nouveau programme de travail. Ce document sera adresse officiellement I l'IDA dans lestous prochains jours pour avis. La mission a rappele les travaux mends, lors des deux dernieres missionsde Mife Tonia MNarek dans ce domaine, le programme de travail propose ainsi que le seminaire desriesibilisation entrepris avec le Ministere de la sant6.

. D4veloppement institutionrel

:0. Les dtudes. Concernant les d&udes prevues pour lI'laboration de progrnmmes derenforcements des fonctions 'budgetisation' et r gestion des personnels", la premiere est en cours alorsque pour la seconde, qui souffre d'un grand retard, il a dtd convenu avec la DAAF/M:EBAM, que destermes de reference seront pr6parxs et adresses a l'IDA pour avis dans les tous prochains jours.

21. Renforcement de la Direction de la planification. Le recrutement du consultant pour la cartescoiaire a ete fait. Le premier seminaire de formation a ete mend et les enquates sur le terrain sont encours. Ceci permettra, des septembre prochain, d'etablir la carte actuelle des implantations et de cernerles populations restant encore a servir. Un seminaire sur 1'4tablissement de la carte previsionnelle estprevue en octobre-novembre 1994. Cette carce devrait commencer par celle de l'implantation, selon unordre de priorit6 a definir selon les criteres retenus, des classes prevus dans les programmes

- 6 -

d'investissements du primaire (IDA, BM,BAD, etc..). La mission reitere sa non objection aufinancement d'un consultant pour la revue des problemes de collecte, analyse et publication desstatistiques discutes. Par ailleurs, et concemant la sminaire sur les problemes qualiutifs mends endecembre 1993, la mission apprecierait de recevoir la rapport des discussions menees et lesreco=amndarions. Par ailleurs, concernant 1 etude en cours avec l'REDU sur les depenses des f:amiles,la mission encourage sa finalisation au plus tot.

Ministbre de I'enseianement secondaire sup6rieur at de la recherche scienrifique.

22. I)Direction de la olanification. La mission a reitere ce qui a deja ete discutd lors desprecedentes missions: ['objet de la composante inclus le renforcement de la collecte, analyse et traitementdes informations staristiques, le financement d'4eudes relatives I I'analyse des problames de strategie etde politiques des enseignements du secondaire eE du superieur, en particulier celles relatives aux mesuresbudg4taires pr4vues. Elle prevoir egalement 1'4rude des problbmes de l'nseignement techaique etprofessionnel due au 30 juin 1993, et reportee au 30 juin 1994. Des termes de reference pour l'4tude surl'enseignement technique et professionnel ont ete remis de maniere non-officielle I la mission. La missionA fait part de la possibUite pour l'IDA, d'initier un evenruel Projet pour la consolidation del'enseignernent technique et professionnel lorsque [a coanaissance de ce sous-secteur sera suffisammentavancee. Elle a aussi sugaare a la Direction de 1'enseignement techaique et professionnel et I celle de laplanification du MESSRS, de mener une etude plus approfondie que l'tude tres jgndrale actuellementprevue day/par les termes de reference, erude qui devrait porter sur l'administraion, le fonctionnement,la qualite et la pertinence de la formation et des filieres en fonction du marche de l'emploi, lesmecanismes de suivi et de prise en compte des signaux de ce meme marche, le niveau d'implication desemployeurs dans la definition des politiques pour et dans la gestion de ce sous secteur, ses modalites definancement ainsi que le cadre de fonctionnement at le rOle laisses au priv6 dans ce domaine. La missiona suggErd, dinclure dans la mission d'etude propos6e, deux spdcialistes des formations industrielles ettertiaires dont l'un avec une boane connaissance de la gestion des etablissements et l'autre de celle de laformation continue, ainsi qu'un economiste, spEcialiste des problemes de l'emploi et qui aurait egalementA itudier les aspects du financement du sous secteur.

23. Direction des inspections de 1'enseignemenc secondaire. Le malentendu sur le paiementdes encadreurs des stages de recyclage au dell des frais de voyage et de perdiem habituels, vient d'4treleve. Le programme actuel de recyclage int6resse les professeurs de sciences naamrelles et comprend troissessions prevues respectivement pour juillet, septembre et octobre 1994. La mission encourage la DIESi pr6voir des sessions interessant les autres disciplines et particulierement pour celles ouz la situationsemble difnicile: les sciences physiques et les mathematiques. Considerant la dramatique faiblesse deseffectifs dans la filiere C (maths et sciences), la plus imnportante du point de vue de la formation descadres pour le developpement et dont l'impact sur la distorsion des effectifs au niveau de l'universit6(concentration des effectifs de l'universitd au niveau de trois ou quatre facultes sans grande perspectived'emploi pour les competences de leur sortants), il est sugg6r6 de proc6der au plus tdt, avec ['aide despecialistes dans ce domaine, (equipe mixte compose. de specialistes de la discipline et des techniquesde mesures) I une evaluation diagnostic des programmes et des difficultds d'apprentissage desmathdmatiques et des sciences physiques I partir de la premiere annde du premier du cycle du secondaire.Le probleme de la repartition des effectifs au niveau de l'universitd et surtout de la maltrise de leuraccroissement sera aborde lors de la preparation du projet enseignement superieur prEvu.

24. Concernant les formations prevues, il serait ndcessaire de reprendre contact avec lescentres vises, d'en obtenir les programmes et de les adresser pour avis I ['IDA en mame temps que lesCVs des candidats eE les coats. Le processus d'acquisition des trois vehicules a ete acheve. Toutefois, les

soumission.s 4t.an libellees en FCFA, la processus d'ajustement des prix doit atre men6 sur la base desformules dUveLopp4es par le ministare du du Plan, ce qui ne saurait maintenant tarder.

5. Gestion des bourses de I'enseiaznement suoerieur. Des termes de reference out ete prepareset adresses A I'DA pour avis. Tourefois at parallelement, les termes de reference ost ete adressees I troisuniversires pour sol!iciter des offres de services pour le diveloppemeat du schema directeur sans que 'lalertre d'invitatica' pr&: se les zriteres sur lesquels les offres eventuelles seraient evaluees; en outre, unprojet de coarrat n'a pas 4t6 joint a la lettre d'invitation. La mission a fait part au BPE quil seraitne essaire et prudent de respecter les proc4dures prevues pour les coasultants et d'arresdre tescommentaires et avis evenruels de I'MDA. En outre, un 'audit informatique' de la Directioa del'orientation et des bourses a et engage sans consultation prealable de l'IDA sur le bien fonde de ces'trnavaux" qui font double emploi avec la mission de consultation prevu sur le schema directeur. Enconsequence, la mission fait part que le contrat, a cet effet, avec 1'entreprise 'EINTELAC' ne pourra trefinancz sur le Cr4dit 2244-BUR.

26. Svsreme d'information de gestion de l'Universite. Peu de progres semblent avoir et4accomplis dans ce domaine.

7. Audit et comotes des oroiets. Les audits des deux projets au 31 decernbre 1993 (Cr.1598-BUR et Cr. 224t4BUR) ont deja 4t4.cffectuds et les rapports seront transmis a I'DA durant le moisd'avril 1994. 11 a 4t6 convenu avec le BPE que l'audit des comptes du Cr. 1598-BUR au 31 mars 1994devrait etre rapidement effectue at adressd A I'MA avant la fin du mois de juin 1994.

TROISTEME PROJET EDUCATION (CR. 1598-BUR)

28. Le Credit 1598-BUR a ete clos le 31 mars 1994. Pour permete le reglement desengagements pris avant le 31 mars 1994, et comme indique dans le telex du 9 fevrier 1994 adresse I ceteffet au gouvernement, les comptes financiers du credit seront clos le 31 juillet 1994. Le montantinitialement verse au compte special a ete recupdre, I l'exception des fonds retenus danm l'ancien comptedu projet I la BNDB.

29. Action: Le compte spEcial etant 'solde", il serait necessaire de preparer et d'adresser Il'IDA les demandes de paiement au profit des differents fournisseurs de biens et services pour leurpermettre d'etre payes avant la cloture des comptes du credit.

30. Leas tbleaux quantitaifs sur l'etat d'execution des differents programmes du Credit ontete Elabores par le Bureau du projet et remis A la mission.

PROJET PROPOSE DE CONSOLIDATION DE L'UNIVERSITE DE OUAGADOUGOU

31. Le modele de simulation du fonctioanement de l'universite de Ouagadougou a pu etre alimentedes donnes necessaires et cela grace aux efforts consentis par les responsables et cadres administratifs etfinanciers de l'universite. Le modble et ses resultats ont ete presentes I M. Ie Recteur ct k deux de sesprincipaux collaborateurs. Les aspects [es plus frappants sont: (i) le faible aiveau des ressources alloudesA I'enseignement, environ 25 % au lieu des 40-45 % generalement admis; (ii) le faible montant affecteau materiel didactique au sens large, environ 5 % ; (iii) le niveau eleve des horaires d'enseignementconfies I des vacataires avec toute les consequences sur la qualite. Par ailleurs, le niveau eleve desadmissions au cours des recentes annees, va signifier un accroissement rapide des dipldmes (et celamaalgre la faible retention) dans des specialites qui, pour le moias ne semblent pas tres demandees parle marche de 1'emploi. Tout accroissement des effectifs dans les facultes concerndes (FIASH, FASEG,

(FIASH, FASEG, etc ..) ne fera qu'aggraver la situation 1. Une analyse plus d6taillee des problemesposds et des mesures I prendre k cet effet sera adressee bientot au gouvernement.

32. Au cours de ses rencontres avec les responsables de 1'enseignement supdrieur et toutparticulierement avec M. Ie Recteur de l'Universite et M. Ie Directeur de la planification, la mission adiscute de I'etat d'avancement de la preparation du projet identifle en decembre 1994 et pour laquelle destermes de r6fdrences ddtaillds avaient dtd proposds par l'IDA. La mission a pris note du peu de progresaccomplis dans cette preparation. M. le Recteur de l'Universite a indiqude a la mission qu'il tenaittoutefois a ce que la pre6-valuation du projet propose puisse se tenir selon le calendrier initialement prevusoit en Mai-Juin 1994. Parmi ces problemes, les plus importants semblent fet: (a) le ddveloppementrapide des effectifs durant les dernieres annees, ce problbme commence toutefois a recevoir une solution(paragraphe ci-dessus) ; (b) la rigidite de l'organisation acaddmique ; (c) la faible efficacite interne etexterne; (d) la distorsion dans la structre de qualifications des personnels enseignants; (e) la faiblessedes services de bibliotheques ; et (f) le management centralise de l'universite et les problemes d'allocationde ressources. Le developpement d'un cadre general et des mesures d'accompagnement constituel'1lement fondamental du projet dans lequel viendraient s'inserer les investissements pertinents.

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GOVERNMENT OF BURKINA FASO

MINISTRY OF BASIC EDUCATION AND GENERAL LITERACYSECRETARIAT-GENERAL

Education Projects Bureau

COMPLETION REPORT ON EDUCATION PROJECT HICREDIT 1598-BUR

Ouagadougou, March 1994Education Proiects Bureau

I

MINISTRY OF BASIC EDUCATION AND GENERAL LITERACYSECRETARIAT-GENERAL

Education Projects Bureau

REPORT TO THE GOVERNMENT OF BURKINA FASOON EDUCATION PROJECT m

CREDIT 1598-BUR

I. INTRODUCTION

1.1 This document is the Completion Report on the Primary Education DevelopmentProject in Burkina Faso, financed by IDA under Credit 1 598-BUR.

The First Education Project (Credit 430-UV) financed reinforcement of the FJA(Formation desjeunes agriculteurs) system and construction of 22 science laboratories.

The Second Education Project (Credit 956-UV) made funding of US$14 millionavailable for support of the FJA training system and strengthening of the VocationalTraining Center operated by the Ministry of Public Works.

1.2 The Primary Education Development Project, which focused on expansion andquality improvement in primary education, was signed on June 17, 1985 and becameeffective the following November 18. It was the first of the three to be the exclusiveresponsibility of the Ministry of Education. Total cost was estimated at SDR 21.8 million,roughly equivalent to US$21.8 million. The Burkina Government was to contribute anadditional SDR 1.6 million.

1.3 Education Project III was completed on March 31, 1994, after two extensions, andthe Credit closing date is July 31, 1994.

This Completion Report, intended for the Government of Burkina Faso andprepared by the Project Directorate, renders an account of what has been achieved in thefield of education as a result of implementation of the project.

H. BACKGROUND

2.1 Proiect obiectives and components

2.1.1 The key objective of Education Project III was to put a financing strategy intooperation that would accelerate the expansion of primary education by reducing unit costs

at this level of the education system, and that would strengthen the education authorities'planning, management, administration, and cost-control capabilities.

2.1.2 In order to ensure that these overall objectives would be accomplished, the projectdesigners focused on the following specific objectives:

2.1.2.1 Reducing unit costs, by recruiting new primary-school teachers(instituteurs adjoints) at a salary level below that of the main corps of Grade 1teachers, and also by improving the internal efficiency of primary education byfocusing on teacher training and on means of producing, procuring and distributingtextbooks.

2.1.2.2 Reducing primary-school construction costs, by executing a pilot school-building program to design and construct classrooms at a lower cost and bypromoting local participation in that process. A system of periodic schoolmaintenance and repair was also to be introduced.

2.1.2.3 Promoting institutional development in the education sector, bystrengthening the planning, management and control of education expenditures soas to ensure that the reduced unit costs could be sustained. This was to beachieved by reallocating resources as necessary, and by taking the steps needed toreinforce the Planning Directorate of the Ministry of Basic Education, theGuidance and Fellowships Directorate of the Ministry of Higher Education andScientific Research, and the FJA training system of the Ministry of Agriculture.

2.1.3 The project consisted of several components:

2.1.3.1 Reduction of unit costs:- Restructuring of teacher training- Development, procurement and distribution of textbooks- Building and maintenance of primary schools

2.1.3.2 Institutional development:- Planning- Management of higher education- Management of the FJA training system- Management of the project

2.2 Points of aereement and recommendations at the Droiect negotiation stafe

In the course of the project negotiations between the Borrower and the Bank, theGovernment gave assurances that the following conditions would be met:

Issue by December 31, 1986 of a decree upgrading the promotionexaminations open to primary-school teachers, making them moreselective.

Reorganization of the Teaching Materials Production Department of theBurkina Pedagogical Institute, through creation by June 30, 1986 of anEditing Division and a Production Division.

Formulation by June 30, 1986 of a directive (to be agreed upon with IDA)regarding the level of government subsidies to private education, andpartial review by April 30, 1986 of the expenditures and financing needs ofthe education sector, with a view to providing for either a reallocation of,or an increase in, the budget resources devoted to primary education.

Establishment by June 30, 1986 of a National Commission (answerable tothe Ministry of Agriculture) to study ways and means of coordinating theprimary education system and the FJA training system. Examination of theCommnission's conclusions by June 30, 1987.

Enforcement of a requirement that Burkina nationals who are beneficiariesof training abroad funded from the proceeds of this Credit must return totheir jobs for at least three years.

Annual certified audit of the project accounts.

Forwarding to IDA of six-monthly progress reports throughout the projectimplementation period, the first to be due on January 31, 1986.

2.3 Proiect modifications

2.3.1 Project content went through the following changes in the course of theimplementation period:

2.3.1.1 Introduction of a new component under which the Directorate ofGuidance and Fellowships of the Ministry of Higher Education shared theresources initially allocated to it with that Ministry's Directorate of Studies andPlanning.

2.3.1.2 Frequent modifications - recommended by the IDA supervisionmissions - in the methods used to execute the school building and equipmentprogram, in view of the poor results with this component in the first years of theproject period.

2.3.1.3 Suspension of the FJA component in July 1992, pending completion ofboth the evaluation report on the FJA training system and an assessment ofprogress with the component between 1985 and 1992.

2.3.1.4 Suspension on the initial project closing date of the technical support (inthe form of the services of a project administrator and an architect) made availableto the Education Projects Bureau by the consulting firm WPW.

2.3.2 Numerous problems of the administrative and management type led to majordelays in execution of the project, which was finally completed over three years behindschedule - after two postponements of the closing date.

2.3.3 The pace of project disbursements was slow until 1991, when it improvedconsiderably as a result of the Education Projects Bureau being granted a specialdispensation by the Government from compliance with procurement requirements.

2.3.4 Utilization of the proceeds of the Credit differed from one expenditure category toanother, varying between 10.77 percent execution in one case to 135.67 percent inanother. As of March 31, 1994, the average budget execution rate over all categories was95.60 percent.

Two reallocations of Credit proceeds were negotiated over the 1992-1993 period,and a third is to be anticipated at the time the project accounts are closed.

There was no action in two expenditure categories, although for different reasons:

(a) Category 4 (Periodic maintenance and repair of primary schools in projectareas): At 55 percent, the national counterpart contribution was too high;the Government never met it.

(b) Category 7B (Salaries of teachers in project primary schools): TheGovernment refused to cover this type of project cost.

2.4 General conclusions

2.4.1 Quantitatively speaking, and despite the Government's suspension of this operationin 1987, project results have generally exceeded the goals set. There are exceptions,however: the National Primary-Teacher Training College at Loumbila and the Directorateof Guidance and Fellowships, two cases in which not all plans could be carried out, byreason of:

(a) The scale on which the needs of each component had to be formulated andlack of the ability to assess them correctly on such a scale. The resultinginaccuracies held up the procurement process.

(b) The time-consuming nature of the procurement process and relatedscheduling errors on the part of the Education Projects Bureau took theirtoll.

(c) Frequent failure on the part of suppliers to provide goods and services upto specification.

However, major efforts were made in the field of training and in conductingstudies.

2.4.2 Qualitatively speaking, although project results have not yet been flilly evaluated,there has clearly been a very significant improvement in education sector institutionalability to carry out increasingly coherent sector development programs.

2.4.3 The project has helped expand primary education notably (the enrollment ratehaving increased from 23.90 percent in 1985 to 31.87 percent in 1993). It has alsogenerated more thorough knowledge of the education system in general and the primaryeducation subsystem in particular. Finally, it has added to system planning andmanagement capabilities.

2.4.4 The project school building program calls for special comment. Although itachieved its quantitative goals, its initial design was faulty and there was significantwastage of building materials. In the final analysis, the goal of cost reduction was notachieved.

IV. PROJECT IMPLEMENTATION

A. Physical achievements

4.1 Civil enEineerini

4.1.1 National Primary-School Teacher Training College. Loumbila (Ministry of BasicEducation)

Construction of 12 teachers' housesFencing of the 12 housesConversion of dormitories into classrooms for student-teacher practicalcourses

4.1.2 Burkina Pedagogical Institute (Ministry of Basic Education)

- Renovation of Institute premises- Repairs to and extension of library- Repairs to building housing editing/publishing division- Construction of building to house print shop

4.1.3 Directorate of Administration and Finance (Ministry of Basic Education)

- Construction of central textbook warehouse

- Renovation of textbook storage points at Bobo and Ouahigouya

4.1.4 Education Projects Bureau (Ministry of Basic Education)

- Construction of an office building to be shared by the Bureau with theDirectorate of Studies and Planning (Ministry of Basic Education)

- Construction and equipping of three regional Bureau branch offices- Development and fencing of building site- Development of two parking lots and other utility systems

4.2 Buildinfz and maintenance of primary schools

4.2.1 This program provides for:

low-cost construction and equipping of 450 classrooms in sevendisadvantaged areas of the country;a pilot program to allow experimentation with alternative methods ofschool construction;financial support for communities through matching contributions to theconstruction and equipping of school facilities.

4.2.2 As of March 31, 1994, the program calling for the construction and equipping of450 classrooms, 450 teachers' houses, 150 canteens, and 150 double latrines in the sevenprovinces of Tapoa, Gourma, Gnagna, Sanmatenga, Namentenga, Bam, and Yatenga hadyielded the following results: 414 classrooms, 381 teachers' houses, 138 canteens, 138latrines.

On the date set for closure of the project accounts, works delivery formalities willhave been completed at all project work sites, except for a group of seven schoolcomplexes (consisting of 21 classrooms, 21 teachers' houses, 7 canteens, and 7 schoollatrines), which will be carried over to Education Project IV with IDA approval.

Since work in Yatenga province was ahead of schedule, an additional group of 10school complexes was begun and completed, bringing the number of program classroomsup to 480.

Even if all the hopes that existed at the outset of this operation have not beenfulfilled, it is nevertheless the case that the new strategy introduced on therecommendation of IDA made the year 1993 one of the best periods of Education ProjectIII: as of March 31, 1994, the school building program execution rate had risen from 43percent to 92 percent in the case of schools and from 16 percent to 85 percent in the caseof teachers' houses. In other words, over the period of 17 months from October 1992 theproject achieved the following progress rates: schools and associated facilities, 110.7percent; teachers' houses and associated facilities, 396.9 percent.

These figures would have been significantly higher if:

the invitations to bid issued in October 1992 had not been annulled by IDAwithout sufficient cause;the project work sites had not consequently been faced with a majordisruption in building-material supplies;payments to subcontractors had not been irregular.

4.2.3 The pilot building program allowed for the construction of 10 schools with threeclassrooms each, with the expectation that this would lead to identification of newmethods and new strategies of school construction. The French architectural consultingfirm CRATERRE was commissioned to conduct the experiments and execute theprogram, which was finally only half completed:

- two buildings (at Yagma and Noongande) were constructed by the localauthorities with materials supplied by the Education Projects Bureau;

- one building (at Zoetgomde) was constructed on the initiative of localcommunity groups;

- one building (at Songa) was constructed with a focus on maximum costcutting and a high degree of community participation;

- the teaching-practice school at the National Primary-School TeacherTraining College at Loumbila was also in this category.

The results obtained from this pilot operation were not meaningful.

4.2.4 Matching contributions were expected to make it possible to sustain school-construction initiatives in villages whose communities had been responsible for mostschool construction and equipping without government assistance.

There were two phases to implementation of this project component:

(a) During the first phase, the procedure was to allocate funds in tranches tobe managed by local governments - a system that was quickly abandoned,however, because that management left much to be desired.

(b) During the second phase, the new procedure was to enter into contractswith local community groups or Parents Associations, an alternative whichresulted in:

construction of 248 classrooms and 104 teachers' houses;repair of 105 classrooms and two houses;

\ - equipping of 182 classrooms with school furniture;equipping of 990 schools with teaching materials.

The fact that this program gave such good results, despite the initial interruptionbecause of the poor performance of local governments in allocating funds, can be ascribedto the flexible approach taken in implementing it.

4.2.5 If the results of this program are included, the project as a whole can be creditedwith the construction of 662 classrooms, 485 teachers' houses, 138 canteens, and 138latrines.

4.2.6 Each school complex that benefited under the project was to be equipped with awell and school furniture. Out of a total of 150 wells sunk, 131 proved successful and 19unsuccessful. All classrooms (450 plus those built via the pilot program) were equipped.

4.3 Epuipment, furniture and vehicles

No serious problems affected budget execution in this project expenditurecategory. In general, the local competitive bidding process was used, and all goodscontracted for were actually delivered. The following reservations apply, however:

There were significant delays in deliveries.Equipment received was sometimes of poor quality.The needs - particularly in connection with new inspections - of thefollowing departments and agencies for goods of these types were notadequately covered: National Primary-School Teacher Training College atLoumbila, Directorate of Guidance and Fellowships (Ministry of Secondaryand Higher Education and Scientific Research), and Directorate of SchoolEquipment (Ministry of Basic Education and General Literacy).

VI. CONCLUSIONS AND RECOMMENDATIONS

6.1 This project enabled the education sector to:

(1) increase enrollment capacity in the formal primary education subsector;(2) improve the quality of education;(3) upgrade the ability of government departments and agencies in the sector

to execute their current programs efficiently and effectively;(4) obtain a fuller and more accurate picture of the system, and to institute

well-coordinated plans and action programs.

6.2 However, these gains have yet to be consolidated by greater efficiency throughoutthe system, especially as project results have been slow to have their full potential impact,mainly because of:

(1) The relative complexity of the project, implementation of which requiredmajor participation by at least nine departments or agencies belonging tothree different ministries. In addition, the successive managers of theoperation had to meet high standards of stringency and transparency,sometimes without the benefit of support from IDA or their ownsupervisory authorities.

(2) The lengthy nature of both the Government and IDA processes by whichdecisions were taken on procurement of goods and services,disbursements, and mobilization of counterpart funds.

(3) A high project staff turnover rate between 1986 and 1993: six individualssucceeded one another in the project director position.

(4) Shortcomings, during the first four years of the project implementationperiod, in ongoing technical assistance arrangements in the accounting andconstruction fields. There was no transfer of know-how.

(5) Poor management of coordination arrangements.

6.3 Despite advances attributable to the project in all areas of educational action,sector management, capability remains seriously limited. It would be advisable to ensurethat the designers of any future project make allowances for this fact by:

(1) framing a realistic implementation schedule;

(2) resolving logistical difficulties, particularly those encountered in rural areas;

(3) reviewing the implementation arrangements for construction programs,ensuring that community responsibility is not over-emphasized and thatworks are executed on a joint basis (en entreprise generale);

(4) increasing the size of the initial disbursement so as to reduce paymentdelays;

(5) establishing conditions conducive to fast-paced execution of the project-e.g. reliance on private consulting firms to prepare documentation and tocarry out some execution tasks, simplification of procurement procedures;

(6) drawing up a procedures manual and providing project officials withtraining in their particular fields of responsibility;

(7) making IDA supervision strategy more cogent by ensuring that:

7.1 supervision missions are neither too close together nor too long;7.2 mission recommendations and suggested policy measures are better

organized and ranked according to priority;7.3 the contents of mission aide-memoires are better explained at wrap-up meetings.

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IMAGING

PRe po rt No: 14464Type: ICR

Documents

World Bank Document · DFOMR Direction de la formation et de I 'organisation du monde rural (Directorate of Rural Training and Organization) DOB Direction de l 'orientation et des