Document of The World Bank FOR OFFICIAL USE ONLY
Public Disclosure Authorized Report No: ICR00003315
IMPLEMENTATION COMPLETION AND RESULTS REPORT IDA-49450 ON A CREDIT Public Disclosure Authorized
IN THE AMOUNT OF SDR 63.9 MILLION (US$101.3 MILLION EQUIVALENT) TO THE
THE REPUBLIC OF SENEGAL
Public Disclosure Authorized FOR THE TERTIARY EDUCATION GOVERNANCE AND FINANCING FOR RESULTS
September 30, 2019
Education Global Practice Africa Region Public Disclosure Authorized
CURRENCY EQUIVALENTS
(Exchange Rate Effective December 30, 2019)
Currency Unit = FCFA FCFA 621 = US$1 US$1.38 = SDR 1
FISCAL YEAR July 1 - June 30
Regional Vice President: Hafez M. H. Ghanem Country Director: Nathan Belete Director: Amit Dar Practice Manager: Meskerem Mulatu Task Team Leader(s): Hamoud Abdel Wedoud Kamil ICR Main Contributor: Sandra F. Beemer
ABBREVIATIONS AND ACRONYMS
3FPT Unique Fund for Vocational Training CAMES African and Malagasy Council for Higher Education (Conseil Africain et Malgache pour l’ enseignement superieur) CAS Country Assistance Strategy CBA Cost-benefit Analysis COUD Dakar University Social Center (Centre des œuvres universitaires de Dakar) CPS Country Partnership Strategy CROUS Saint-Louis University Regional Social Services Center (Centre Régional des Oeuvres Universitaires de Saint Louis) CUR Regional University Centers DAGE Directorate of General Administration and Equipment (Direction de l'Administration Générale et de l'Equipement) DGCBEP General Directorate for Construction of Public Buildings (Direction Générale de la Construction des Bâtiments et Edifices Publics) DGHE Directorate General for Higher Education DP Development Partner ESMF Environmental and Social Management Framework FM Financial Management GDP Gross Domestic Product GoS Government of Senegal HCERES High Council for Evaluation of Research and Higher Education HEI Higher Education Institution ICR Implementation Completion Results Report ICT Information and Communication Technology IDA International Development Association IFC International Finance Corporation IFR Interim Financial Report IRI Intermediate Results Indicator IRR Internal Rate of Return ISEP Tertiary Education Vocational Institute (Institut Supérieur d’Etudes Professionnelles) ISR Implementation Status Report LMD Bachelor's, Master's, PHD (Licence, Master, Doctorat) M&E Monitoring and Evaluation MIGA Multilateral Investment Guarantee Agency MOEF Ministry of Economy and Finance MOHESR Ministry of Higher Education and Scientific Research MTR Mid-term Review NPV Net Present Value NQAA National Quality Assurance Authority OECD Organization for Economic Cooperation and Development PAD Project Appraisal Document PAQUET Programme d’amelioration de la qualite, de l’equite et de la transparence PBC Performance-Based Contract PDO Project Development Objective PRSC Poverty Reduction Support Credit PRSP Poverty Reduction Strategy Paper RPF Resettlement Policy Framework SDR Special Drawing Rights SIGERS Integrated Higher Education and Research Management System SIL Specific Investment Loan SNDES National Economic and Social Development Strategy STEP Systematic Tracking of Exchanges in Procurement SVU Senegal Virtual University SYSCOHADA Accounting System (Systeme Compatible OHADA) TA Technical Assistance TEGFR Tertiary Education Governance and Financing for Results TESDP Tertiary Education Strategic Development Program TTL Task Team Leader TVET Technical and Vocational Education and Training UCAD Cheikh Anta Diop University of Dakar (Université Cheikh Anta Diop de Dakar) UEMOA West African Economic and Monetary Union UGB Gaston Berger University (Université Gaston Berger) WAEMU West African Economic and Monetary Union
TABLE OF CONTENTS
DATA SHEET ...... 1 I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ...... 5 A. CONTEXT AT APPRAISAL ...... 5 B. SIGNIFICANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE) ...... 13 II. OUTCOME ...... 14 A. RELEVANCE OF PDOs ...... 14 B. ACHIEVEMENT OF PDOs (EFFICACY) ...... 15 C. EFFICIENCY ...... 22 D. JUSTIFICATION OF OVERALL OUTCOME RATING ...... 23 E. OTHER OUTCOMES AND IMPACTS (IF ANY) ...... 25 Not Applicable...... 27 III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME ...... 27 A. KEY FACTORS DURING PREPARATION ...... 27 B. KEY FACTORS DURING IMPLEMENTATION ...... 29 IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME .. 31 A. QUALITY OF MONITORING AND EVALUATION (M&E) ...... 31 B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY COMPLIANCE ...... 33 C. BANK PERFORMANCE ...... 34 D. RISK TO DEVELOPMENT OUTCOME ...... 35 V. LESSONS AND RECOMMENDATIONS ...... 35 ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS ...... 38 ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION ...... 53 ANNEX 3. PROJECT COST BY COMPONENT ...... 55 ANNEX 4. EFFICIENCY ANALYSIS ...... 56 ANNEX 5. BORROWER, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS ... 71 ANNEX 6. SUPPORTING DOCUMENTS (IF ANY) ...... 72
The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
DATA SHEET
BASIC INFORMATION
Product Information Project ID Project Name
SENEGAL Tertiary Education Governance and Financing P123673 For Results
Country Financing Instrument
Senegal Investment Project Financing
Original EA Category Revised EA Category
Partial Assessment (B) Partial Assessment (B)
Organizations
Borrower Implementing Agency
Ministry of Higher Education and Scientific Research REPUBLIC OF SENEGAL (MOHESR), General Directorate of Higher Education
Project Development Objective (PDO)
Original PDO The project development objective is to enhance the efficiency and quality of the higher education system and the oversight and accountability of higher education institutions (HEI).
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
FINANCING
Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$) World Bank Financing
101,300,000 101,300,000 90,088,625 IDA-49450 Total 101,300,000 101,300,000 90,088,625
Non-World Bank Financing 0 0 0 Borrower/Recipient 26,000,000 26,000,000 24,100,000 Total 26,000,000 26,000,000 24,100,000 Total Project Cost 127,300,000 127,300,000 114,188,625
KEY DATES
ApprovalFIN_TABLE_DAT Effectiveness MTR Review Original Closing Actual Closing 26-May-2011 13-Dec-2011 30-Jun-2016 30-Dec-2018
RESTRUCTURING AND/OR ADDITIONAL FINANCING
Date(s) Amount Disbursed (US$M) Key Revisions 16-Mar-2016 76.71 Change in Loan Closing Date(s) Reallocation between Disbursement Categories 04-Oct-2017 86.35 Change in Results Framework Change in Loan Closing Date(s)
KEY RATINGS
Outcome Bank Performance M&E Quality Moderately Satisfactory Moderately Satisfactory Substantial
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
RATINGS OF PROJECT PERFORMANCE IN ISRs
Actual No. Date ISR Archived DO Rating IP Rating Disbursements (US$M) 01 21-Sep-2011 Satisfactory Satisfactory .65
02 21-Apr-2012 Satisfactory Satisfactory 2.55
03 10-Nov-2012 Satisfactory Satisfactory 2.55
04 22-Jun-2013 Satisfactory Satisfactory 23.87
05 28-Dec-2013 Satisfactory Satisfactory 28.90
06 30-Jun-2014 Satisfactory Satisfactory 36.78
07 25-Dec-2014 Satisfactory Satisfactory 43.10
08 22-Jun-2015 Satisfactory Satisfactory 63.94
09 03-Jan-2016 Satisfactory Satisfactory 65.79
10 19-Jul-2016 Satisfactory Satisfactory 77.26
11 22-Mar-2017 Satisfactory Moderately Satisfactory 79.66
12 31-Oct-2017 Satisfactory Moderately Satisfactory 86.90
13 12-Jun-2018 Moderately Satisfactory Moderately Satisfactory 92.84
SECTORS AND THEMES
Sectors Major Sector/Sector (%)
Education 100 Public Administration - Education 11 Tertiary Education 75 Workforce Development and Vocational Education 14
Themes Major Theme/ Theme (Level 2)/ Theme (Level 3) (%)
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
Human Development and Gender 0
Education 100
Access to Education 25
Science and Technology 25
Teachers 25
Standards, Curriculum and Textbooks 25
Private Sector Development 100
Jobs 100
ADM STAFF
Role At Approval At ICR
Regional Vice President: Obiageli Katryn Ezekwesili Hafez M. H. Ghanem
Country Director: McDonald P. Benjamin Nathan M. Belete
Director: Ritva S. Reinikka Amit Dar
Practice Manager: Peter Nicolas Materu Meskerem Mulatu
Task Team Leader(s): Atou Seck Hamoud Abdel Wedoud Kamil
ICR Contributing Author: Sandra F. Beemer
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES
A. CONTEXT AT APPRAISAL
Context
1. Country Context. At the time of appraisal, Senegal’s economy had steady registered growth. There had been episodes of low growth,1 however, Gross Domestic Project (GDP) had grown at an average rate of 4.1 percent a year and had nearly doubled in size from CFAF 3.3 trillion in 2000 to CFAF 6.4 billion in 2010 (purchasing power parity of US$13.2 billion and US$23.8 billion).2 Although broad-based, growth in domestic output was led by the tertiary (service) sector which had grown at an annual rate of 6.5 percent, and by a dynamic telecommunications sector. Senegal had the most competitive telecommunications sector in the West African economic and Monetary Union (WAEMU) region. Further, according to the World Economic Indicators of competitiveness, Senegal ranked among the top African countries in terms of innovation3. The primary and secondary sectors had been relatively less productive, but nevertheless still registered positive annual growth rates of 3.5 and 1.3 percent, respectively, between 2000 and 2010. The relatively high and sustained level of growth was attributable to improvements in the business climate drawn principally from an extended period of prudent macro-economic management, increased public investment in infrastructure (notably in the road, port and aviation sectors) to facilitate transport and boost exports, and increased resources for investment from remittances and savings which underwrote a sustained increase in building construction.
2. The sustained upward trend in growth resulted in both higher job creation in the modern sector and a decline in poverty. From 2000-2003, when economic growth was highest, the annual job rate growth in the modern sector was more than double the annual performance of any year during the previous decade.4 The fraction of the population falling below the poverty line dropped from 57 percent in 2000 to 51 percent in 2005.5 In 2010, the per capita income was about US$1,000 (US$1,800 in purchasing power parity), putting Senegal on the lower limit of the World Bank’s classification of a middle income country. Despite these achievements and important competitive advantages, notably its proximity to international markets and a history of peaceful democratic transitions, economic growth had been lower than the average for Sub-Saharan Africa and was insufficient to boost standards of living to levels found in emerging economies.
3. Over the medium-term, it was expected that there would be continued expansion in the telecommunications, port, mining, education and health sectors. With its port and a relatively good stock of educated workers, there was potential for much stronger growth in Senegal, quite possibly in the manufacturing, horticultural, design and tourism sectors, but significant efforts were needed to create an adequate investment climate. Investment in high growth sectors
1 The downturns were attributed primarily to external shocks, notably to low rainfall in an agricultural sector that was largely dependent on the elements, the international financial crises, and rising international oil and food prices at the time of appraisal. 2 International Monetary Fund, World Economic Indicators online, January 2011. 3 The high rating on innovation was due to a small number of capital intensive, internationally competitive large enterprises. World Economic Forum, 2010. The Global Competitiveness Report 2010-2011. 4 World Bank 2010. Senegal Higher Education Public Expenditure Review, draft. 5 Senegal Poverty Monitoring Survey, ESPS 2006.
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
would be dependent on political, macroeconomic and price stability, adequate provision of electricity to the economic sectors, strong growth in remittances (itself a function of global economic growth) and continued investment in telecommunications, port and mining sectors. For these reasons, the Government of Senegal (GoS) wanted to better align its tertiary education system to the country’s competitiveness and growth agenda to improve the employability of graduates and their impact on productivity and growth.
4. Sector Context. University enrollment and employment opportunities suggested a widening gap between skills with high demand and the education provided by public universities. Supply chain analyses [GoS 2009] for Senegal’s growth sectors projected continued strong demand for technical, managerial and innovative skills in engineering, agro- industry, transportation, logistics, teaching, health care, Information Communication Technology (ICT), marketing, entrepreneurship and finance--programs in short supply at universities where enrollment in arts and social sciences had boomed. At the same time, enrollments in science, applied science, technology and medicine had fallen from 35 percent in 1991 to 25 percent in 2008, while student demand for these programs exceeded places available. Approximately 17 percent of students were enrolled in science and technology programs, which was low when compared to other African countries where it was on average 22 percent and for Organization for Economic Cooperation and Development (OECD) countries where it was 25 percent. Moreover, only 3.5 percent of students were enrolled in short-term professional and technical programs. In contrast to the situation in Anglophone countries, the selection of candidates for short-term professional courses in public higher education institutions was such that only the best – and only a few – of the holders of the baccalaureate certificate were able to enroll in these courses.
5. University enrollments had expanded from 59,400 in 2005 to 98,000 in 2010, representing approximately a 13 percent annual growth rate. Women represented 33 percent of the total enrollment. Tertiary education had diversified with an expanding private sector with the creation of public Regional University Centers (CUR) in three provincial cities (Thies, Bambey, and Ziguinchor) and the introduction of two-year professional programs at the Universities of Dakar and Saint Louis. The University of Dakar was by far the largest university with about 60,000 students. Universities were, for the most part autonomous institutions with the responsibility of hiring staff, determining programs, designing curricula, collecting fees, selecting students and managing budgets. There were approximately 90 private Higher Education Institutions (HEIs) enrolling 27 percent of students mostly in accounting, business, tourism, communication, and ICT programs.
6. Internal efficiency in higher education was low. The low productivity of Senegal’s public HEIs was primarily due to high repetition and low survival rates. For instance, University Checikh Anta Diop (UCAD) students in their final year of the three-year bachelor’s degree spent an average of 5.2 years at the university, or 73 percent longer than the duration of the program. Dropout rates after the first year were about 30 percent with another 25 percent repeating the first year. Progression rates were much better for programs where enrollments were selective, student/teacher ratios were low and where the Licence-Master-Doctorat (LMD) approach of using the credit hours had been introduced. The fact that students could fail an entire year having only failed one course, contributed to the excessively high repetition rates in non-LMD programs.
7. In 2009, the Government was allocating an average of 32 percent of its public recurrent budget to education (more than any other African country), and 24 percent of that to tertiary education. In 2010, public expenditures on universities absorbed 7.8 percent of total public recurrent expenditure, representing 1.2 percent of GDP. The latter rate
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
was higher than the Sub-Saharan average of 0.6 percent and the OECD average of 1.0 percent. Senegal spent more in absolute terms per student than most of the African countries and twice as much per student compared to India, Madagascar, and Cote d’Ivoire. Since 2005, on average, 61 percent of total public expenditure on tertiary education had been allocated to student subsidies and only 38 percent to the core university functions of teaching and research. The high level of expenditures on tertiary education was primarily due to significantly higher salaries of teaching staff relative to national income6 and high levels of expenditure for student subsidies. Government commitment to provide all bacheliers with a place in a public university and all students with scholarships had led to a rapid growth in student subsidies which led to a crowding-out of expenditures for core functions of the universities. Additionally, high teacher salaries limited the recruitment of staff to accommodate the increasing student numbers. In 2009, a university professor at the entry level earned a gross monthly salary highly competitive with salaries offered in many OECD countries. However, the relatively high level of public financing had not resulted in comparatively better results.
8. Senegal had the objective to become an export-oriented and knowledge-based economy with a labor force which possessed high technical skills. The strategies to achieve this objective were outlined in the document Vers un Sénégal Emergent: Feuille de Route de l’Enseignement Supérieur à la lumière des directives Présidentielles (2009-2015). This document updated the Government’s 2005 higher education policy document. The main strategic options retained were to: (i) expand access to Institutions that offer shorter-term diploma programs, increase enrollment at the Université Gaston Berger (UGB), reduce enrollments at the University of Dakar, and reinforce policies to encourage expansion of the private sector; (ii) raise internal and external efficiency rates; (iii) improve the quality and relevance of programs by putting in place systems of quality assurance, contracting mechanism for results, making courses more relevant to the labor market and promoting greater use of information technology in teaching; (iv) diversify sources of financing; and (v) modernize the governance and management systems of the higher education system.
9. Governance and Management. At the time of appraisal, HEIs operated with great independence but little accountability or national coordination. The Ministry of Higher Education and Scientific Research (MOHESR) and the Directorate General of Higher Education (DGHE) had limited control over HEIs because of its weak technical capacity to coordinate the system. In particular, the DGHE had few technical staff, resources and limited authority over HEIs and Rectors, thus having little leverage to effectively coordinate and monitor implementation of government policy. This created a situation where: (i) institutions chose their own path to introduce the LMD system without reference to standards or mechanisms to control the duplication of programs; (ii) data and performance of the sector were not aggregated and analyzed; (iii) there were many similar programs without an analysis of the need, costs or coordination between institutions; (iv) numerous parallel fee-paying programs were being opened; and (v) universities received block grants from the government without transparent and efficient allocation and accountability arrangements. There was also no mechanism to assess the quality of programs and university management of Senegal’s public HEIs, which had considerable pedagogic autonomy, and there were a growing number of private for-profit institutions. At the regional level, Conseil Africain et Malgache pour l’ enseignement superieur (CAMES) carried out accreditations of programs and institutions. CAMES was a regional organization in charge of quality assurance in francophone countries. However, HEIs were accredited on a voluntary basis and there is no systematic evaluation of the quality of service provided by public and private institutions.
6 Professor salaries are competitive with those in developed economies. On the domestic market, a starting assistant professor earns 3.3 times more than an individual with a similar level of qualification working in formal sector. The salary represents 22 times GDP per capita. Starting full professors earn substantially more.
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
10. The Tertiary Education Governance and Financing for Results (TEGFR) project supported the government higher education strategy by deepening reforms of tertiary education sector with an emphasis on: (i) rationalizing public resources to promote financial sustainability and equity; (ii) strengthening the governance and management of the sector by introducing more accountability at the sector level by establishing mechanisms to improve the financial accountability of HEIs; and (iii) providing technical assistance to put in place strong governance institutions to inform, coordinate and monitor tertiary education policies, programs and quality.
11. Project Context. The project was implemented at a time of student and teacher unrest. Historically, in 1968, the movement for independence first started in the departments of sociology and philosophy that originally constituted the University of Dakar. It was in this context, that students and teachers began their first strike for improved conditions and quality of education. In response, the government convened the 1981 les états Généraux de l’éducation (National Education Forum) which followed with the 1991 law of orientation that affirmed compulsory schooling, secularism, the promotion of democratic values and the anchoring of the school in the Senegalese and African values with a permanent education character. In 2014, the government launched the National Education Assistance with the objective of implementing a policy aimed, inter alia, at creating a quality, viable, reliable and peaceful school for all. To ensure stakeholders understanding of the policies, the government conducted a series of consultations to build consensus which required a strong commitment on the part of the MOHESR. Despite the new policy reforms and MOHESR commitment implementing them, there was student and teacher unrest related to better working conditions and overcrowding. Moreover, the Ministry of Economy and Finance (MOEF), who is responsible for providing scholarships to all students attending HEIs in Senegal, was not releasing the scholarship funds to the students in a timely manner.7 All of this led to several strikes by students and teachers (led by the teachers’ unions) during the project implementation period. The strikes reduced working time and negatively impact student promotion/success rates. These disruptions led, in some cases, to a whole year almost being invalidated in some departments and faculties such as the Gaston Berger University (Université Gaston Berger). More recently, consultations, initiated by the government with union representatives and civil society organizations, have contributed to better dialogue and fewer strikes.
Theory of Change (Results Chain)
12. The project results chain is presented in Figure 1. The results chain illustrates the key inputs, activities, outputs and outcomes by project component. The long-term outcome to which the project sought to contribute was an increase in the availability of well-trained public and private workers. In order to eventually realize this long-term goal, the first step was to enhance the efficiency and quality of the higher education system and the oversight and accountability of HEIs. It was recognized that the introduction of performance-based contracts (PBCs), in conjunction with a formal oversight body, were essential elements of a higher education system if there was to be improvement in oversight and accountability. The introduction of these activities was based on experience and lessons learned from other countries around the world. It was also recognized that institutional accreditation was, and is, a mechanism to ensure the quality of higher education (Ryan 2015)8 and that measuring quality outcomes, based on an externally monitored accreditation
7 There is automatic promotion from senior secondary school to higher education institutions in Senegal provided students pass the final exam (Baccalaureate) and all are entitled to a scholarship to attend university. 8 Ryan, T. 2015. Quality Assurance in Higher Education: A Review of Literature.
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
system of standards, was a basic component for enhancing quality assurance within the higher education system. The monitoring of the quality improvements of the project was targeted directly at the HEIs with a goal of increasing the number of HEI programs accredited by National Quality Assurance Authority (NQAA).
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
Figure 1. Results Chain Senegal Tertiary Education Governance and Financing - Project Results Chain
Intermediate Outcomes/ Components/Activities Indicators Outcomes/ Indicators
1.1 a) Establish GDHE
- Premises established/rented (yes/no) - Office furnished and equipped (yes/no) - Staff trained (number) - IT system in place (yes/no)
1.1 b) Establish NQAA
- Office furnished and equipped (yes/no) Improved Government management and - Staff trained (number) monitoring of tertiary education system
1.1 c) Establish HEI Boards of Directors - GDHE is created to provide oversight and coordinate the implementaiton of reforms in the - Legal framework updated to reform university tertiary education system (yes/no) governance (yes/no) - Annual tertiary education statistics report produced (yes/no) - Budget allocated based on performance contracts PDO: Enhanced efficiency and 1.2 Develop performance based incentive mechanisms (%) - All tertiary institutions use the new financial law to quality of the higher education manage their budget (yes/no) system and the oversight and - Staff trained on performance based contracts (number) - Tertiary institutions with a Board of Directors accountability of targeted HEIs - Equipment to monitor performance based contracts in (Conseil d'Administration) that approve the annual place (yes/no) budget (%) Efficiency 1.3 Develop monitoring and evaluation mechanisms - Promotion rate for the first year by university (%) - Staff trained (number) - Monitoring equipment, software, computers in place Quality - Academic programs that meet minimum (yes/no) - External evaluation s of performance based contracts quality standards as set by NQAA (%) Oversight 1.4 Strengthen sector knowledge - Universities with performance-based contracts negotiated and overseen by - Studies undertaken (number) GHDE (%)
Improved learning environment, performance and Accountability 2.1 Implement Performance Based Contracts quality management of targeted HEIs - Institutionsthat achieve at least 80 percent of the annual targets set in the - Detailed Action Plans/proposals prepared (number) - Repeating students in year 1 by area of study and performance based contracts (%) - Proposals assessed by MOHESR (number) university (%) - Performance Based Contracts signed and - Undergraduate programs elaborated according to Beneficiaries implemented (number) LMD with complete description (number) - Direct Project Beneficiaries (number), of which female (%) CORE 2.3 Construct, rehabilitate and equip targeted HEI - Teachers having followed training in the LMD facilities requirements for teaching (%)
- Classrooms and other facilties constructed, rehabitlitated and/or equipped (number)
2.2 Establish ISEP in Thies Improved access to short term tertiary education
- Classrooms and other facilties built and equipped - ISEP is functional (yes/no) (number) - Students enrolled in programs designed with private sector in ISEP (number)
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
Project Development Objectives (PDOs)
13. The project PDO was to enhance the efficiency and quality of the higher education system and the oversight and accountability of HEIs. The PDO statement in the Project Appraisal Document (PAD) and Financing Agreement are consistent.
14. It is important to note that the HEIs targeted under the project were specifically the five public HEIs of: (i) Cheikh Anta Diop University of Dakar (Université Cheikh Anta Diop de Dakar), (ii) Gaston Berger University; (iii) University of Bambey; (iv) University of Thies; and (v) University of Ziguinchor. These were the only public institutions at the time of preparation. Moreover, the key outcomes for the project were specifically to be measured in the five public HEIs.
Key Expected Outcomes and Outcome Indicators
15. It was expected that the project-supported activities would result in the following key outcomes: (i) enhanced efficiency in higher education system; (ii) enhanced quality of the higher education system; (iii) enhanced oversight of HEIs; and (iv) enhanced accountability of HEIs. The five PDO-level indicators were directly linked to the overarching objectives and were supplemented by 10 intermediate results indicators (IRIs). PDO-level indicator 1 corresponded to objective 1 (enhance efficiency); PDO-level Indicator 2 corresponded to objective 2 (enhanced quality); PDO 3 corresponded to objective 3 (enhanced oversight) and PDO-level 4 corresponded directly to objective 4 (enhanced accountability). A more thorough description of each indicator is provided below.
• PDO indicator 1 was to measure efficiency through the increased percentage of the promotion rate for the first-year students by university. • PDO indicator 2 was to measure quality through the increased percentage of academic programs that meet minimum quality standards as set by the NQAA. • PDO indicator 3 was to measure enhanced oversight of universities based on the percentage of the public universities that negotiated performance-based contracts and were overseen by the DGHE. • PDO indicator 4 was to measure accountability through the percentage of institutions that achieve at least 80 percent of the annual targets set in the performance-based contracts. • PDO indicator 5 was to measure the number direct beneficiaries as calculated by students in the new ISEP school and students enrolled in the targeted five public HEIs (percent) female.
Components
16. Component 1: Strengthening the governance of the tertiary education system [IDA US$7.1 million equivalent (Actual cost US$45.7 million); Government US$1.0 million (Actual cost US$4.37 million)] This component was to: (i) support the implementation of higher education governance bodies including the Directorate General of Higher Education, the National Quality Assurance Authority and University Boards of Directors; (ii) support project implementation and management; (iii) develop a monitoring and evaluation system; and (iv) carry out specific studies to generate more knowledge for the system. The component had four sub-components. Sub-component 1.1: Operationalizing Governance Bodies. This sub-component supported sub-sector-wide initiatives directed towards improving the overall governance and management of higher education. At the
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
system level, the project financed equipment, training, and technical assistance to strengthen the governance of higher education in the context of a rapidly expanding system by supporting the development of two higher education governance bodies: the DGHE and the NQAA. At the institutional level, the sub-component financed training and capacity building of university governance bodies, notably the Board of Directors (Conseil d’Administration) and university management teams. Sub-component 1.2: Project Implementation and Management. This sub-component supported the implementation of the project with training and technical assistance (TA) for the Direction de l’Administration Generale et de l’Equipement (DAGE), the Direction Générale de la Construction des Bâtiments et Edifices Publics (DGCBEP), universities, the Ministry of Economy and Finance, and the Tertiary Education Vocational Institute (ISEP — Institut Supérieur d’Etudes Professionnelles) for the effective management and monitoring of the project. It supported the implementation of the environmental action plans. It also supported universities, Ministry of Economy and Finance, and Ministry of Higher Education and Scientific Research in managing PBCs through training of staff, technical assistance and provision of equipment to monitor the implementation of the PBCs. Sub-component 1.3: Development of a Monitoring and Evaluation system. This sub-component provided support to set up a monitoring and evaluation system both at the sector level as well as individual institution level. The latter was done to ensure that project indicators could systematically be measured and to more easily track the execution of the performance-based contracts mechanism for each institution. External evaluations of each annual PBC were to be used for decision-making for financing of each subsequent year. Sub-component 1.4: Sector Knowledge Development Generation. This sub-component financed specific studies9 to generate knowledge to inform decision-making and to improve the performance of the system.
17. Component 2: Improvement of the Effectiveness of the Tertiary Education Institutions [IDA US$60 million equivalent (Actual cost US$44.4 million); and Government US$25 million (Actual cost US$19.73 million)]. This component aimed at: (i) creating incentives to improve the effectiveness and efficiency in public resources utilization within HEIs by establishing PBCs between the government and the universities to improve accountability and efficiency in resource management; (ii) diversifying the tertiary education system and increasing access to short-term tertiary education by creating a new Tertiary Education and Vocational Institute in Thies and by establishing an information communication technology-facilitated network; and (iii) rehabilitating and expanding the Senegalese HEIs. The component had three sub-components: Sub-component 2.1: Performance based contracts. This sub-component was to create incentives to improve the effectiveness, efficiency and accountability of HEIs in the utilization of public resources using PBCs between tertiary institutions and the government. The government supported these plans with performance agreements that required each HEI to prepare a detailed action plan and budget covering outputs and outcomes to be achieved in a five-year period.
9 The studies were: (i) evaluation of the Centres des Oeuvres Universitaires de Dakar, and Saint-Louis (COUD and CROUS) to review their effectiveness and the service delivery quality; (ii) evaluation of the Senegalese research system and management; (iii) audit of the efficiency and effectiveness of bursaries allocation and management system; (iv) feasibility studies for the implementation of the ISEP network and a second tertiary institution in Dakar including the bidding documents, the legal framework, and the safeguards requirements; (v) an evaluation of university financial, procurement and information systems for the midterm review; (vi) annual financial audit of universities; (vii) an annual Tertiary education status report as an update of the 2010 public expenditure and financing review of the higher education sector; and (viii) specific surveys and assessments for student satisfaction, LMD implementation and other quality related issues.
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Sub-component 2.2: Diversifying and increasing access to short term tertiary education. This sub-component aimed to improve the efficiency and relevance of the tertiary education system by reducing the overall number of years required to obtain a degree by increasing the availability of short-term tertiary education and by developing alternative ways to access tertiary education. Sub-component 2.3: Improving the learning environment. This sub-component aimed at improving the quality of the facilities for a better learning environment. Priority was to be given to regional universities that were struggling with an acute lack of facilities. The sub-component financed: (i) the rehabilitation and expansion of facilities and purchase of equipment for the Universities of Thies, Bambey, Ziguinchor and; (ii) Saint-Louis and the rehabilitation of facilities and purchase of equipment for UCAD.
B. SIGNIFICANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE)
Revised PDOs and Outcome Targets
18. The project development objectives and end-of-project targets remained unchanged throughout the life of the project.
Revised PDO Indicators
19. The PDO indicators were not revised during the project period.
Revised Components
20. The project components were not revised during the project period.
Other Changes
21. On March 1, 2016, a level 2 restructuring was approved that: (i) extended the closing date from June 30, 2016 to December 30, 2017 (18 months) to provide additional time to complete the rehabilitation and construction of the higher education institutions being supported by the project; (ii) reallocated funds from the unallocated category in the amount of Special Drawing Rights (SDR) 20,100,000 (equivalent US$34.2 million) to Category 1 to support feasibility studies and institutional set up of a Tertiary Education Vocational Institute — Institut Supérieur d’Etudes Professionnelles, in Diamniadio and a university in Kaolack; and (iii) reallocate SDR 1,498,635 (equivalent US$2.5 million) from Category 3 (pre-financing) to Category 2 to support creative incentives for better effectiveness and efficiency of HEIs in public resources utilization through performance based contracts between the government and the universities (Part B.1 of the financing agreement).
22. On October 4, 2017, a level 2 restructuring was approved that extended the closing date from December 30, 2017 to December 30, 2018 (12 months), to complete the construction of the University of Ziguinchor and University of Thies, the rehabilitation of the University of Dakar and the expansion of the Universities of Bambey and Saint Louis. The delays in the construction were primarily due to delays in the provision of counterpart funding needed to complete the
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construction work. The disbursement estimates were adjusted to account for the extended closing date and to more accurately reflect the disbursement progress at the time of restructuring. The restructuring also did not include any fundamental changes to the results framework (RF), which retained all the same indicators and targets. However, the end target date was adjusted to December 30, 2018 to match the new closing date. While the restructuring paper clearly states that there were to be no revision to the results framework, there were inconsistencies within the project paper related to the explicit wording in the text and the attached results framework that shows some different targets. Moreover, after the restructuring, the two final Implementation Status Results Reports (ISRs) had inconsistent target data. The Implementation Completion and Results Report (ICR) team confirmed with the task team that, in fact, the targets were to remain as specified in the Project Appraisal Document (PAD) and an error was made with entry into the Bank system. Therefore, for the purposes of the ICR evaluation, the original targets specific in the PAD were used.
Rationale for Changes and Their Implication on the Original Theory of Change
23. The modifications did not affect the original theory of change but rather provided more time to more fully implement the construction and rehabilitation activities for the Universities of Thies, Bambey, Ziguinchor Saint-Louis and Dakar. The extra time also provided more time to support the institutionalization of the government’s higher education reforms through the establishment of a strong DGHE, PBCs, ISEP, and the quality assurance system.
II. OUTCOME
A. RELEVANCE OF PDOs
Assessment of Relevance of PDOs and Rating
24. The PDO was highly relevant at the time of appraisal and continues to be highly relevant today.
25. Relevance at appraisal. The PDO was highly relevant to the country’s sectoral needs when the project was developed. The objectives fit with the Government’s Tertiary Education Strategic Development Program (2011-2016) (TESDP). It also supported Pillar 1 of the 2007-2010 Country Assistance Strategy (CAS)10 that aimed to accelerate growth and wealth creation by developing a knowledge economy. The project also supported the World Bank’s 2010 Fourth Poverty Reduction Support Credit (PRSC IV) and 2011 Fifth Poverty Reduction Support Credit (PRSC-V) which were aimed at supporting the Government's Second Poverty Reduction Strategy Paper (PRSP-II), specifically related to Pillars 2 and 4 of the PRSP-II.11 During implementation, the project continued to be highly relevant given its strong alignment with the government’s 2012 National Strategy for Economic and Social Development (SNDES) which aimed to reverse the downward trend in growth by improving the productivity of Senegal's economy in the public and private sectors. The project was closely aligned with the country’s development agenda in that it was designed to bring higher education at the national and institutional levels more in line with the demand for technical, professional and higher-level skills required by a knowledge-based economy. Agreement on the objectives and design of the project was the result of
10 The CAS 2007-2010 was extended to cover 2011. 11 Pillar 2 aimed at promoting access to basic services by a growing population and the implementation of the national strategies in the education and health and Pillar 4 supported the strengthening of the effectiveness of public spending.
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intensive and extensive discussions between government, universities, students, and employers with the Bank playing an advisory role and bringing, among other, experience with university reforms from other countries. Of the many issues facing higher education—efficiency, quality, oversight and accountability—were the most urgent ones that needed to be addressed, and the inputs provided by the project were well targeted to address the most pressing problems facing higher education. The project was designed to be the major vehicle for the pursuit of the government’s TESDP. In addition, the interventions under project were aligned with the Bank’s twin goals of eradicating extreme poverty and increasing shared prosperity given its focus on building the human capital base within Senegal.
26. Relevance at project completion. The development objectives continued to be highly relevant to the World Bank’s, IFC and MIGA's 2013-2017 Joint Country Partnership Strategy (CPS) that aimed to support the SNDES priority on human development through Pillar 1: Accelerating Inclusive Growth and Creating Jobs. This pillar focused both on developing a skilled workforce and using technology to accelerate growth and job creation. At closing, the project’s PDOs remain highly relevant. The Bank’s 2018 Systematic Country Diagnostic12 states that in the medium to long-term only increases in productivity through strong human capital formation and innovation can lead to sustained economic growth and rising living standards. Moreover, the project remains very relevant to Senegal's new higher education strategy that aims to improve quality, equity and transparency for the education and training sector (Programme d’amelioration de la qualite, de l’equite et de la transparence—PAQUET, 2018-2035). Senegal’s goals are to train a critical mass of qualified skilled manpower, and to produce scientific and technological solutions for economic, social and cultural changes for structural transformation and the emergence of Senegal prosperity. Building upon the significant achievements observed over the past several years, Senegal aims to further strengthen the efficiency in the allocation and use of resources, strengthen the management and coordination of programs, widen access to quality education, and better link academic programs with skills demanded by the labor market. The TEGFR provided the foundation for achievement of these goals by supporting the NQAA, DGHE, PBCs and ISEP.
B. ACHIEVEMENT OF PDOs (EFFICACY)
Assessment of Achievement of Each Objective/Outcome
27. The overall efficacy of the PDOs is rated substantial. Four of the five PDO indicators were met and the 7 of the 10 intermediate results indicators (IRIs) were met or exceeded. The project development objectives and project indicator targets remained unchanged throughout the life of the project. As indicated above, there were inconsistencies in the project documentation related to targets and for the purposes of this evaluation, the PAD targets are being used to measure project performance. The results framework and the scope of the project was not downsized during any of the restructurings. Therefore, a split evaluation is not warranted for this project.
28. The following assessment of the PDOs is organized around four key objectives: (i) enhanced efficiency of higher education; (ii) enhanced quality of higher education; (iii) enhanced oversight of HEIs; and (iv) enhanced accountability of HEIs. The project included the core indicator on “direct project beneficiaries”. At the time of project closing, direct project beneficiaries in the project supported HEIs had increased from a baseline of 68,322 to 191,095 (of which 40 percent were women) exceeding the 2018 target of 86,000 by 105,095. For a detailed overview of activities undertaken and progress
12 World Bank Group. Systematic Country Diagnostic of Senegal. Dakar, Senegal. October 4, 2018.
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observed on each of the indicators over the life of the project, please refer to the Key Outputs by Component section in Annex 1.
29. Objective 1: Enhance the efficiency of the higher education system. Achievement of this objective is rated modest. The level of achievement for the first objective was measured by the following indicators: (i) the promotion rate for the first year for the five targeted public HEIs (PDO level indicator); (ii) repeating students in year 1 in UCAD and the average of other institutions (IRI); (iii) students enrolled in programs designed with private sector in the ISEP (IRI); and (iv) ISEP is functional (IRI). The achievement of enhanced efficiency of the HEIs was to be attained through a combination of interventions related to the establishment of an ISEP to provide two-year tertiary education programs linked to economic needs and new construction of better equipped facilities at the targeted universities.
30. The results of the PDO indicator promotion rate for the first year for the five targeted public HEIs are as follows:
University Baseline % Target % Actual % Achievement Percent Increase over 2010 2018 2018 baseline UCAD 30 60 45.4213 Missed target by 14.58% 51.4% UGB 70 90 75 Missed target by 15.0% 7.1% University of Bambey 80 90 75.36 Missed target by 14.64% -5.8% University of Thies 70 80 88.53 Exceeded target by 8.53% 26.5% University of Ziguinchor 57 80 71.78 Missed target by 8.22% 25.9%
31. Even though four out of the five public universities missed the institutions targets, overall, progress was achieved in the promotion rates. This achievement was laudable given the fact that for academic year 2014-2015 and 2017-2018, there were student and teacher’s strikes that led to shortened academic years which, in turn, led to a situation in which students only took one exam thereby reducing their opportunities for passing. This is significant because within the university system in Senegal, promotion rates are based primarily on the fact that students can fail an entire year having failed just one course. Therefore, the fact that students could only take one exam for all courses had considerable impact on the results achieved. These same exogenous14 factors impacted the IRI—repeating students in year 1 by university (see below for results). Despite the impact of the exogenous factors, universities are taking a proactive approach to finding ways to improve promotion rates within the universities. The universities have begun to implement a series of programs namely: (i) remediation classes; (ii) tutoring systems (both peer and teacher); (iii) exam preparation classes; (ii) note taking classes; and (v) training in learning techniques. Implementation of these types of activities by the university are important given the fact that all students that pass the baccalaureate move directly to university. Going forward, the increased use of LMD courses offered should have a positive impact on improving the promotion rate and reducing repetition rate and
13 The average rate of promotion for UCAD was impacted mostly by two faculties—the Faculty of Legal and Political Science (34.87 percent) and the Faculty of Science and Technology (33.96 percent). These two faculties had approximately 28 percent of the enrollment at UCAD. The average promotion rate for the other four UCAD faculties was approximately 58 percent. The six schools and institutes of UCAD have an average promotion rate of approximately 89 percent. With th 00e exception of the Faculty of Legal and Political science and the Faculty of Science and Technology, the average year 1 promotion level for UCAD is approximately 73 percent. 14 The primary exogenous factors that impacted the strikes were related to non-payment of guaranteed scholarships to students and limited release of the needed counterpart funds for completion and improvement of university facilities—all MOEF responsibilities. The improvement of facilities, which relates to better working conditions for teachers and students, was a primary complaint of teachers and withholding scholarships led teachers and students to strike.
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dropout rates since the LMD system is a course/credit hour system. (See below for more details on the project LMD achievements.)
32. The intermediate indicator that supported this PDO was to reduce the “repeating students in year 1 in UCAD from 40 percent in 2010 to 20 percent in 2018”and the average of other institutions15 from 16 percent in 2010 to 10 percent in 2018. By project closing, UCAD had reduced the repetition of year 1 students from a baseline of 40 percent in 2010 to 29.80 percent missing the target by 9.8 percent. The expected reduction for the other four public universities, from 16 percent in 2010 to 10 percent in 2018, was not achieved over the life of the project due to numerous student-teacher strikes that impacted the academic year cycle and administration of required exams for passing. By project closing, the average had increased from 16 percent to 20.83 percent for 201816.
33. The two intermediate indicators related to ISEP that support this objective “students enrolled in programs designed with private sector in the ISEP and ISEP is functional” were both achieved. The project played a key role in the institutional strengthening of two-year tertiary education programs through the ISEP in Thies17. The project supported the development of a decree establishing ISEPs which provided the organization and operating regulations for the ISEP. The focus of the two-year programs has been on providing skilled manpower for some of the strategic sectors of the Senegalese economy, in particular: agriculture, water and energy, mining, ICT and telecommunications, and management. In addition, the programs were implemented to absorb the “bachelors” and reduce the overcrowding at the two main universities UCAD and UGB. To date, a total of 400 students have graduated from ISEP, nearly 50 percent of whom are female. ISEP insertion rates continue to be very satisfactory at approximately 70 percent. In addition, nearly 15 percent of graduates are self-employed. Similarly, the institute's promotion rate is among the best in the system (99 percent). ISEP also has a fairly innovative system for monitoring graduates. ISEP has set up a tracer system for the leavers to determine their professional insertion both for six months and one year after their graduation from the ISEP. This system of following up is important for determining the relevance of the training for the employment market as well as the time taken to obtain the first job. NQAA provides quality assurance for the programs being offered through their accreditation process. The relevance of the programs is also being supported with the inclusion of private sector participation through twinning relationships.18 As a result of the success of the Thies ISEP, there are now four additional ISEP projects underway in Diamniadio, Richard-Toll, Bignona, and Matam financed by the French Development Agency. It is expected that the ISEP network will be functional through Senegal by 2020.
34. Although not an indicator, the project supported the five project HEIs that were struggling with an acute lack of facilities in order to provide students with a better learning environment that would facilitate improved efficiency within the system. By the time of submission of the ICR, the project construction completions was as follows: (i) UCAD construction of an amphitheater was 100 percent completed and is fully functional; (ii) UGB construction of an extension was 100 percent completed and fully operational; (iii) University of Bambey construction of an extension was 100 percent completed and fully operational; (iv) ISEP in Thies was completed with government funding after the project closing date
15 Gaston Berger University; University of Bambey; University of Thies; and University of Ziguinchor 16 The overall average was influenced to a large extent by the UGB where the overall repetition rate was 25 percent. This level of performance within UGB was influenced by the repetition rates of the Faculty of Law and Applied Science and Technology, where they are respectively 33 percent and 35 percent. Except for these two faculties, the repetition rate in level 1 at the UGB was 11.71 percent. Ultimately, the performance of universities is very significant with the implementation of the PBC. However, two faculties at the UGB and two faculties at UCAD had a negative influence on the expected performance levels. 17 Thies is the second largest economic center in Senegal. 18 ISEP is now offering courses related to railway maintenance, tourism, creation multi-media products, computer systems and networking, agriculture, and renewable energy.
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and students will begin using the new building at the start of the new academic year in October 2019; (v) University of Thies construction was ongoing and the government had allocated the funds to carry out the work—it was expected that the works would be achieved by December 2019; and (vi) University of Ziguinchor construction was halted due to limited funds to complete the project. Nonetheless, the national budget for 2020 has allocated approximately US$50 million to complete the civil works at Thies and Ziguinchor and continue the ISEP expansion plan.
35. It should also be noted that the project contributed to another important area related to improving the efficiency of the higher education system. The project contributed to the reform of the scholarship program through a thorough audit of the scholarship program. The audit of scholarships was completed in December 2013 and based on the audit, a decree setting new regulations for national and international scholarship was signed in August 2014. The reform refocused the scholarship program on merit and social criteria and was designed to assist students to pursue and succeed in their studies under the best possible conditions. The new system places special emphasis on the promotion of student values and on promoting the access of students from low-income families and women. The new criteria for distribution of the scholarships is that 80 percent of the full scholarships are based on academic criteria and 20 percent are needs based and 60 percent of the half-scholarships are allocated based academic criteria while 40 percent are needs based. This is significant because prior to the introduction of this new system, the scholarship program was pro-rich. Approximately 86 percent and 64 percent of public spending on higher education was going to the two richest quintiles while only 5 percent of public spending was going to the two poorest quintiles and only 14 percent of scholarships were going to the poorest two quintiles. The increased focus on needs-based distribution is considerable change in the allocation process.19 In 2015, the Bank, along with the government, conducted a feasibility study of the scholarships program and based on the study, it was recommended that the government considering a student loan program in conjunction with the improved distribution within the scholarship program.
36. Objective 2: Enhance the quality of the higher education system. Achievement of this objective is rated substantial. The level of achievement for the second objective was measured by the following indicators: (i) academic programs that meet minimum standards as set by the NQAA (PDO level indicator); (ii) undergraduate programs elaborated according to LMD with complete description (IRI); and (iii) teachers having followed training in the LMD requirements for teaching (IRI). The achievement of enhanced quality was achieved through a combination of interventions related to establishing the NQAA which included establishing a board, secretariat, developing evaluation tools, and recruiting and training experts in performance evaluation, as well ensuring the implementation of LMD and training of teachers to improve the quality of the academic programs offered.
37. Over the life of the project, the number of academic programs accredited by NQAA increased from a baseline of 0 in 2010 to 133 in 2018 thereby exceeding the target of 90 by 47.7 percent. NQAA has assessed and approved 88.4 percent of the academic programs that meet the minimum standards20 set up by the NQAA. Moreover, NQAA expanded its mandate to include the accreditation of private higher education institutions and research institutes. NQAA has been able to accredit 36 private higher institutions out of 139 applications submitted indicating that the process is rigorous and conforms with international standards. In 2016, NQAA, made 667 recommendations to improve the relevance of the academic programs and the quality of higher education. By project closing, NQAA had been instrumental in setting-up quality units at every public and private higher education institution and had conducted more than a hundred training
19 Policy Note on Scholarships and Social Policy on Higher Education in Senegal, World Bank, 2017. 20 The minimum standards established by NQAA for accreditations of programs and institutions have been established using international standards and best practices for accreditation at the higher education level.
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seminars in evaluation and quality assurance. NQAA has recruited and trained almost 200 evaluators and organized 500 self-evaluations by public and private HE institutions. It evaluated 138 private institutions and licensed 78 of these. NQAA has assessed the self-evaluations of 133 public institutions and accredited 74 of these institutions. Overall, NQAA has provided the enabling environment to introduce the foundation of quality assurance in major institutions, both public and private, and built the momentum for greater appropriation of the tools to support evaluation within and across institutions. These are significant achievements considering that when the project started there was no formal quality assurance or monitoring of academic programs or quality audit of institutions in Senegal.
38. Intermediate indicators that supported the achievement of this objective were: (i) number of undergraduate programs elaborated according to LMD with complete description and (ii) percentage of teachers having followed training in the LMD requirements. By project closing, the number of undergraduate programs elaborated according to LMD had increased from a baseline of 0 in 2010 to 152 in 2018, exceeding the target of 100. The 152 undergraduate programs elaborated according to LMD represents 100 percent of the undergraduate LMD courses. The percentage of teachers having been trained in the LMD requirements has increased from a baseline of 0 in 2010 to 100 percent in 2018, exceeding the target of 70 percent by 30 percent. The total number of teachers training in LMD standards and university pedagogy was 2,218. Moreover, it is important to note that these indicators were included in the five university PBC action plans that were negotiated with the DGHE. Achievement of these indicators is also a reflection of the effective implementation of PBCs within the public universities.
39. Objective 3: Enhance the oversight of higher education institutions. Achievement of this PDO is rated substantial. The third objective was measured by: (i) the percent of the five public universities with performance-based contracts negotiated and overseen by DGHE (PDO indicator); (ii) ensuring the DGHE is implemented to coordinate the implementation of the tertiary education program, provide oversight for the PBC implementation, and monitor the status of reforms (IRI); (iii) percentage of tertiary institutions with a Board of Directors (Conseil d’Administration) that approves the annual budget (IRI); and (iv) budget allocated based on performance-based contracts (IRI).
40. By project closing, 100 percent of the five public universities had negotiated performance-based contracts with the DGHE, exceeding the target of 80 percent. An external evaluation of each annual PBC was undertaken by the DGHE and the results were used to inform the decision making for financing of the subsequent year’s PBC. The implementation of the PBCs has led to more results at the universities by helping shift the management culture from an inputs-based orientation to one increasingly focusing on results. It should also be noted that the broader impact has been that PBCs are recognized by the MOEF and MOEHR as best practice. As a result, MOEF has recommended that the PBC framework be used to improve the oversight and efficiency of delivery in other sectors within Senegal. In addition, the PBCs are now viewed as best practices for the West African Economic and Monetary Union Countries.
41. The intermediate indicators that supported the achievement of this objective were: (i) DGHE is established to coordinate the implementation of the tertiary education program, provide oversight for the PBC implementation, and monitor the status of reforms; (ii) budget allocated based on performance-based contracts; and (iii) percentage of tertiary institutions with a Board of Directors that approves the annual budget.
42. The DGHE was created by decree in March 2011 and became fully operational in 2013 by exercising increasingly more effective oversight. (See the institutional strengthening section below for more details on the DGHE.) The DGHE
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also analyzed and approved annual budgets and financing for the five project HEIs based on the PBC contracts. Each university PBC included annual targets that were monitored by the DGHE. The monitoring was done throughthe DGHE annual reviews of target achievements which relied on the monitoring and evaluation (M&E) system that had been built with the support of the project in 2013 to collect and analyze performance data of the HEIs as well as DGHE review teams. Based on this process, the HEI annual budgets were allocated and released as designed. Over the life of the project, the MOHESR/DGHE was to begin replacing project funds with counterpart funds, for implementation of the annual PBCs, from a baseline of 0 to the end target of 15 percent. By project closing, the percentage of PBC budget provided by the DGHE for implementation of the PBCs had reached the target of 15 percent thereby meeting the target. However, the more substantial achievement of the project was that upon completion, the use of PBCs had been institutionalized and government funding is now 100 percent of the HEIs annual budgets based on PBCs. As indicated above, the PBCs are considered best practice.
43. At the HEI level, each of the five universities have established management teams and the University of Thies has a Board of Directors established. It should be noted, that the government promulgated Law No.2015-26 (December 28, 2015) reforming the governance of higher education institutions. In 2017, all the decrees were written, including the decree that governed the Board of Directors21. This law separated management functions from academic functions. Pending the establishment of Boards of Directors, whose guidelines are subject to the approval by the government, the universities set up management teams to validate work plans and monitor budget implementation. The University of Thies set up its Board of Directors because the decree establishing the university mandated that the Board of Directors be set up. The other universities decrees mandated the establishment of university councils. The university councils have the same function as the Board of Directors, but the councils have 40 members (7 of which are from the private sector) and is chaired by the president of the university. The new decree governing the Board of Directors reduces the membership to 20 and ensures that the board chair is from the private sector. The signing of the decrees is a major achievement because it was the result of a long consultation process with many stakeholders. (See implementation for details related to development of the laws.) HEIs are now moving forward with establishing Boards of Directors based on the new decree. All-in-all a substantial achievement for the institutionalization of the government’s new higher education governance reform efforts.
44. Objective 4: Enhance the accountability of higher education institutions. Achievement of this objective is rated high. The level of achievement for this objective was measured by the: (i) institutions that achieve at least 80 percent of the annual targets set in the performance-based contracts at the five targeted public HEIs (PDO indicator); (ii) annual tertiary education statistics reported produced (IRI); and (iii) all tertiary institutions use the new financial law to manage their budgets (IRI).
45. Enhanced accountability was achieved through the introduction of PBCs which were five-year detailed action plans that included: (i) budgets covering outputs and outcomes to be achieved during a five-year period; (ii) funding commitments for the first year by budgeting proposed activities and objectives; (iii) funding projections for subsequent years of the agreement; (iv) agreed performance targets; and (v) indicators to monitor progress. Adjustments were made yearly based on the achievement of the performance targets. The DGHE negotiated with each HEI and allocated resources to support each plan.
21 Boards of Directors have a limited number of members with up to 20 members. The Board membership will include faculty from the university as well as civil society and business.
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46. Based on an assessment by an independent auditor, 100 percent of the targeted universities reached the annual targets set by their respective PBCs, exceeding the target of 90 percent. The PBC targets and achievements were related to:
Accountability in the utilization of public resources in line with their annual budgets. As indicated, the HEI budgets were monitored by the DGHE and they were audited to ensure the proper utilization. Inputs to strengthen university management and accounting and finance systems and staff. The project supported five annual training sessions for 70 managers and financial service agents (100 percent) in results- based management and capacity building to master new accounting software which is being used in the five target HEIs. In addition, there were 125 tuition agents (100 percent of the tuition agents) that were trained in student registration and examination management so as to improve management in these areas. The establishment of computer systems and ICT network. The five university PBC target of establishing computer systems and ICT has been successful. Universities were able to develop an ICT network that provides interconnectivity of all the five public universities. Servers were installed at each of the five universities and WiFi networks exist on all the five campuses. Moreover, IT Resource Centers at the level of each University and has made it possible to monitor the implementation of performance contracts and to monitor and inform their performance indicators. On-line teaching programs. The on-line teaching programs are provided through the Senegal Virtual University (SVU) for all higher education students. There were 1,553 teachers (approximately 70 percent) that were trained in the use of ICTs in teaching strategies. In addition, there were 1,325 teachers (approximately 59.73 percent) that were trained to put courses on-line. To ensure the access and utilization of the on-line courses, as well as achievement of the university PBC targets, universities, with project support, implemented a one computer/one student policy by providing 51 percent of students in public universities with individual computers. The computers, along with the connectivity, have provided students more flexibility in their academic pursuits.
47. The intermediate indicators that supported the achievement of the objective were: all tertiary institutions use the new financial law to manage their budgets. By October 2012 the new financial law had been adopted and was being used by all the HEIs. As indicated above, each HEI provided the needed training related to financial services and the new accounting software through the implementation of their PBCs. The annual tertiary education statistics report was produced each year by the DGHE. The data was gathered at the university level through the university integrated management system and forwarded to the DGHE. The DGHE consolidated the university data and then published the annual tertiary education statistics report.
Justification of Overall Efficacy Rating
48. The overall efficacy rating of substantial is justified by the points mentioned above. Four of the five PDO indicators were met or exceeded. The exogenous factors of teacher and student strikes impacted the results as described above. With the further institutionalization of the LMD credit system, which was supported under the project, promotion rates are likely to improve since they will no longer be determined by the fact that students can fail an entire year having failed just one course. The NQAA activities contributed to the increased quality of HEIs through external evaluations of programs and public and private institutions. Oversight improvements resulting from the creation and operations of the DGHE was
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an important aspect of the project and are substantial both at the national as well as at the institutional level. Accountability has improved substantially with the use of PBCs. In November 2018, the MOHESR stated that performance- based plans and budgets would be instituted across the HE system to reinforce the results obtained under the project. Going forward the DGHE will continue to be responsible for monitoring the implementation of HEIs. In addition, the ISEP two-year programs were introduced and are now being expanded with support of other donors. (See Section D— Justification of Overall Outcome Rating for additional details on achievements realized under the project and Section E— Institutional Strengthening for more details on the institutionalization of project-supported activities.)
C. EFFICIENCY
Assessment of Efficiency and Rating
49. The overall project efficiency rating is modest. This section summarizes the economic and financial analysis of the Senegal Tertiary Education Governance and Financing for Results by presenting: (i) key contributions of the economic analysis in terms of providing the rationale for investment in education in Senegal; and (ii) the results of the project cost-benefit analysis at project preparation stage and final actual interventions. The detailed economic and financial analysis is presented in Annex 4.
50. The economic analysis made key contributions to project by providing the rationale for investing in education in Senegal. First, returns on additional year of schooling are positive and individuals with higher levels of education are more likely to engage in better earning economic activities and productive sectors. At the national level, an additional year of schooling yields a 14 percent return. Likewise, the rate of return ranges from 62 percent for individuals with some primary education to 251 percent for individuals with higher education, relative to individuals with no education. Lastly, education is not only associated with higher wage earnings, but it also increases the likelihood of wage employment and employment in sectors with higher returns and employment contracts, which offer greater stability. For instance, an additional year of education increases the probability of working in sectors with higher returns (industry and services) by around 23 percent. Additionally, the increase in the probability of finding wage employment ranges from 38 percent for individuals with some primary education to 202 percent for individuals with Technical and Vocational Education and Training (TVET) education, as compared to individuals with no education.
51. The cost-benefit analysis (CBA) provides justification for investing in the project as detailed in Annex 4. Table 1 below presents the comparison of cost-benefit analysis results at project preparation stage and final actual interventions. Both internal rates of return and net present value of costs and benefits for all components (combined) shows that the project is economically viable at project preparation stage and at the end of the project implementation based on actual beneficiaries of the project. The lower bound of the present discounted value of benefits for the overall project is estimated to be US$127.6 million compared with US$215.9 million at project preparation stage. This significant decrease is potentially associated with the 30-months extension of the closing date of the project without any additional finance. As such, the present discounted value of costs is estimated to be US$71.32 million including other unquantifiable portions compared US$83.5 million at project preparation stage. The corresponding net present value (NPV) of program benefits is US$21.4 million compared
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with US$68.4 million at project preparation stage. The internal rate of return (IRR) associated with this NPV is 20.2 percent which is slightly lower that the IRR (21.0 percent) at project preparation stage. The benefit-cost ratio is 1.6 compared with 1.9 at project preparation stage. Therefore, although some benefits are not fully quantifiable to measure the potential benefits, the NPV from the quantifiable benefits are larger than the NPV costs, and this strongly supports the investments undertaken under the project.
Table 1: Net Present Value in millions of USD and Internal Rate of Return a, At project preparation stage
Access Quality Total IRR 23.4% 20.5% 21.0% Discounted cost (present value of costs) $32.78 $50.70 $83.48 O/w project cost $24.96 $50.70 $75.66 Maintained/incremental costs $8.99 $.00 $8.99 Present value of incremental benefits $146.46 $69.5 $215.9 NPV $49.60 $18.8 $68.4 Benefit/cost ratio 4.5 1.4 1.9 b, Based on actual data at ICR stage
Access Quality Total IRR 16.4% 21.4% 20.2% Discounted cost (present value of costs) $39.17 $32.15 $71.32 O/w project cost $29.83 $32.15 $61.98 Maintained/incremental costs $10.74 $.00 $10.74 Present value of incremental benefits $81.42 $46.2 $127.6 NPV $7.32 $14.0 $21.4 Benefit/cost ratio 2.1 1.4 1.6
52. Overall, the project was implemented in a cost-effective manner although the delays with counterpart funding did require two extensions of the closing date and not all rehabilitation and construction works were completed at project closing.
D. JUSTIFICATION OF OVERALL OUTCOME RATING
53. In terms of relevance of PDO, the project objectives were highly relevant at appraisal and continue to remain so today, directly responding to the current key issues and challenges facing the Senegal higher education sector based on: (i) the government’s current higher education strategy—PAQUET that aims to improve quality, equity and transparency for the education and training sector and to train a critical mass of qualified skilled manpower, and to produce scientific and technological solutions for economic, social and cultural changes for
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structural transformation and the emergence of Senegal prosperity; (ii) the Bank’s twin goals of eradicating extreme poverty and increasing shared prosperity through investment in human capital; and (iii) the World Bank’s, International Finance Corporation (IFC) and Multilateral Investment Guarantee Agency (MIGA) 2013-2017 Joint Country Partnership Strategy that aimed to support the SNDES priority on human development through Pillar 1: Accelerating Inclusive Growth and Creating Jobs—that included developing a skilled workforce and strengthening the use of technology. Moreover, the PDO was visionary and bold for francophone Africa at the time of appraisal and remains so even at the time of project closing. A project focused on higher education system reform that focused on improved quality through the establishment of a national quality assurance mechanism as well as improved efficiency and oversight through PBCs and the DGHE within the francophone African countries had not been tried at the time of appraisal. There are now strong institutional foundations, provided through project support, that were necessary to achieve the project objectives as well as continue with the higher education reform agenda. The government will build on these as they expand the LMD system, improve the overall quality of the system and increase the oversight and efficiency of HEIs through DGHE and PBCs. (See the institutional strengthen section below for more details.) Senegal provides a model for other francophone African countries in this regard.
54. In terms of efficacy, the project is rated substantial having met four of the five PDO indicators and the 7 of the 10 intermediate indicators. Equally important were the achievements related to institutionalization which were: (i) establishment of NQAA given that there was no quality assurance mechanism at the start of the project; (ii) DGHE which now provides strong oversight of the higher education system; (iii) ISEP program providing students with the option of participating in a two-year tertiary education program; and (iv) LMD credit system that moves away from a rigid twice a year overall program exam system to an individual course exam system which should impact promotion rates and repetition rates.
55. The overall efficiency of the project is rated at modest. With the NPV of the quantifiable benefits greater than the NPV costs, the project demonstrated strong efficiency in investments undertaken during implementation. Furthermore, substantial internal and external efficiency gains were observed over the life cycle of the project with majority of the PDO indicators successfully achieving and significantly improved if their targets were not achieved. However, a few factors negatively impacted the overall implementation of the project. For instance, the provision of counterpart funding was a challenge due to the fact that the government’s commitments were greater than the resources available. The delays with counterpart funding did require two extensions of the closing date and not all rehabilitation and construction works had been completed at project closing. In fact, the original closing date was set at June 30, 2016, while the actual closing date was December 30, 2018. The delays had the greatest impact on the delivery of the rehabilitation and expansion of facilities of universities and led to some inefficiencies in terms of implementation.
56. The overall outcome is rated as moderately satisfactory based on the high relevance of the PDO; the substantial rating of the project’s efficacy, and the modest rating of efficiency.
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E. OTHER OUTCOMES AND IMPACTS (IF ANY)
Gender
57. During the project period, the percent increase of female students graduating from HEIs was double that of male students. In addition, women graduates, as a percentage of the overall graduates, increased from 36 percent in 2008 to 46 percent in 2018. The gender impact of the project depended to a large part on the gender equity levels at the lower levels of education, especially at upper secondary at pre-baccalaureate exam level, as university students are drawn from those who pass the baccalaureate. Senegal had made significant progress in improving gender equity, and in 2010 at project preparation, had achieved gender parity at the primary level. By 2017, it had almost achieved gender equity at the secondary level. By 2017, gender parity was 99 percent at lower secondary level and 100 percent at upper secondary level. One of the goals of the project was to reach a rate of female enrollment of 43 percent at the HEIs included in the project. At completion, the female enrollment reached 40 percent, falling short of this goal by 3 percentage points. While the project did not meet the targeted of 43 percent of female enrollment at HEIs, increasing this rate from 33 percent to 40 percent is an improvement towards achieving gender parity in higher education.
Institutional Strengthening
58. Governance Structure for Higher Education in Senegal. After three years of project implementation, the governance structure of the higher education system had completed the needed reforms to become a viable system. To do this, the government had: (i) established the DGHE; (ii) established the NQAA and developed the standards and evaluation criteria for the institutions; and (iii) approved the needed laws for the governance of higher education institutions. The system had moved from limited capacity to one that could oversee the management of institutions through the DGHE and the quality of service delivery through NQAA as follows: Directorate General of Higher Education. When the project was designed there was no formal body within the ministry responsible for overseeing and coordinating the eleven decisions22 for HEIs. As indicated, the DGHE was created through project support and is now a fully functioning body within MOHESR. DGHE is fully staffed and the director is selected through a competitive progress. DGHE is a semi-autonomous body within the MOHESR that provides technical expertise to the Minister. The DGHE now manages the negotiations of the PBCs, oversees the contracts, decides on the budget allocations for the higher education institutions, manages the information system, provides higher education
22 The eleven decisions were: (i) re-orienting the higher education system towards science, technology, short vocational training; (ii) putting Information and Communication Technologies at the heart of higher education and research development to improve access to higher education and the efficiency of the system; (iii) improving the management of the higher education and research system and reform the governance of public higher education institutions; (iv) establishing a culture of peace within public higher education institutions; (v) promoting the careers of teachers, researchers and administrative, technical and service staff; (vi) making the student an actor in his training, promote his success and improve his living conditions; (vii) strengthening the university map to promote access, diversify the training offer and ensure the quality of higher education; (viii) giving new impetus to research and innovation, to open up the Senegalese higher education and research space to Africa and the world; (ix) opening up Senegal's higher education and research space to Africa and the world; (x) improving the management of universities' own budgets and resources through the implementation of modern and transparent procedures and mechanisms, and (xi) investing in higher education and research to live up to our new ambition.
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statistics and works with NQAA on the quality assurance. Moreover, DGHE was, and continues to be, instrumental in the early and on-going reforms of the scholarship program. The full institutionalization of DGHE is a strong achievement of the project. This can be attributed in large part to the strong commitment of the MOHESR to building capacity within the ministry and DGHE to take on their increased oversight role. This was a highly successful achievement. National Quality Assurance Authority. As indicated, at the time of appraisal there was no national level quality assurance body. Based on project support through technical assistance, the higher education quality assurance process has been institutionalized in Senegal. The policies, mechanism and ongoing processes for quality assurance have been established with support from the project. The necessary ingredients of institutional self-assessment based on collection of qualitative and quantitative data by key players is functioning and the external independent quality assurance body has been fully established, and as indicated above, has been performing its quality assurance responsibilities for both public and private institutions. There are also quality assurance cells established within each institution that support the ongoing quality assurance processes at the institutional level. Moreover, NQAA has also worked to develop partnerships and cooperation regionally. NQAA has taken actions to provide quality assurance, technical support for other countries such as Mali, Gambia, Central Africa, Guinea, Chad, Togo, and Benin. NQAA has also partnered with High Council for Evaluation of Research and Higher Education (HCERES) to strengthen their capacities and provide support to Unique Fund for Vocational Training (3FPT) and provide support to new institutions in the continent such as Congo, Cote d’Ivoire. Again, this is a highly successful achievement of the project.
59. Licence-Master-Doctorate. The project provided strong institutional strengthening of the undergraduate LMD system (credit system). The government adopted the legal framework for the LMD system that is now being implemented in all HEIs (both public and private). As indicated, all programs are now using the LMD for teaching and 100 percent of the teachers within the public universities have been trained on LMD requirements. Linked to this has been the quality assurance aspect of the LMD with NQAA now providing accreditation of all programs based solely on the use of LMD courses. Part of the success of the LMD is related to the fact that PBCs included the requirement to expand the use of LMD in the university’s undergraduate programs. Moreover, the LMD courses are also part of the virtual university program in Senegal which is very popular with approximately 58,000 students enrolled in their programs.
60. Performance Based Contracts. The PBCs were introduced through the project and have now become institutionalized in the public universities and are an important driver of change. As indicated above, the MOHESR has stated that performance-based plans and budgets would be instituted across the HE system to continue the efforts started under the project to improve accountability. Going forward, the DGHE will continue to be responsible for monitoring the implementation of HEIs PBC as well as evaluating the success of PBC based on agreed annual indicators. The broader impact has been that PBCs are recognized by the MOHESR and MOEF as best practice and are expanding the use the PBC framework to improve the efficiency of delivery in other sectors. In addition, the PBCs are now viewed as best practices for the West African Economic and Monetary Union Countries (Benin, Burkina Faso, Cote d’Ivoire, Niger, Mali, Senegal, and Togo).
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61. Tertiary Education Vocational Institute. As indicated above, the project played a substantial role in the institutional strengthening of two-year tertiary education programs through the ISEP in Thies23. As a result of the success of the Thies ISEP, there are now four additional ISEP projects underway in Diamniadio, Richard-Toll, Bignona, and Matam financed by the French Development Agency. It is expected that the ISEP network will be functional throughout Senegal by 2020.
Mobilizing Private Sector Financing Not Applicable. Poverty Reduction and Shared Prosperity
62. There was no specific focus related on targeting poor students in this project. However, as previously mentioned, the project conducted an audit/review of the scholarship program and based on the recommendations, Senegal is now implementing a new scholarship program that has an increased focus on low- income families. The project also was supportive at the Bank’s twin goals of eradicating extreme poverty and increasing shared prosperity through investments in building human capital in Senegal. In addition, the project fit within the context of the Bank’s 2010 PRSC-IV and 2011 PRSC-V that supported the Government's PRSP-II specifically related to Pillar 2 aimed at promoting access to basic services by a growing population and the implementation of the national strategies in the education and health and Pillar 4 supported the strengthening of the effectiveness of public spending.
Other Unintended Outcomes and Impacts
63. The primary unintended out of the project was the recognition by MOHESR and MOEF that PBCs were best practice are expanding the use the PBC framework to improve the efficiency of delivery in other sectors. In addition, the PBCs are now viewed as best practices for the West African Economic and Monetary Union Countries (Benin, Burkina Faso, Cote d’Ivoire, Niger, Mali, Senegal, and Togo). Another unintended outcome was the creation of the Senegal Virtual University. Through the PBC goals of developing on-line courses, the government used the experience to create the SVU. The goal was to provide students with an alternative option to access higher education as well as to reduce overcrowding at universities. As indicated, the SVU has become increasingly popular with the enrollment of 58,000 students by project closing.
III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME
A. KEY FACTORS DURING PREPARATION
64. Evidence Based Design. At the time the project was prepared in 2010, the Bank’s supported the preparation of the government’s comprehensive Tertiary Education Strategic Development Program (2011-2016) which operationalized the government’s national strategy (2009-2015) – “Senegal Emerging”. Project preparation focused on governance, resource use, scholarships, and private HE aspects of the TESDP. The World Bank team was in continuous policy dialogue with the government and development partners (DPs) throughout the project
23 Thies is the second largest economic center in Senegal.
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preparation phase which ensured DP involvement as they looked to the Bank to play the catalyst role in helping build consensus and support for the higher education reforms. Preparation included sessions with faculty and students. The 2010 public expenditure review provided data on earnings by education level while supply chain analysis provided data on demand for skills in the growth sector of the economy. Moreover, several government plans, strategies and projections together with these analyses provided the evidence-based to inform the project objectives and design of the project. The project design built on lessons learned from the previous higher education project24 by focusing on a limited number of sector reform areas due to the complexity of undertaking the project reform agenda. The Specific Investment Loan (SIL), rather than an Adaptable Programmatic Lending, was appropriate when the project was developed given the fact that Senegal had shown limited commitment for an eight-year reform program and upcoming elections could have consequences for any agreed reform agenda. In addition, a disbursement based SIL, was considered inappropriate because the financial management system and procurement capacity at the universities was weak. The SIL allowed for provision of the needed technical assistance and institutional strengthening schemes necessary to build the capacity within the DGHE, NQAA and institutions.
65. The theory of change behind the project was sound and the selection of key targets was appropriate. The PDO was focused and appropriate given the need to improve efficiency, quality, oversight and accountability of HE institutions. The objective was outcome-oriented and was appropriately pitched for the government capacity and development status of higher education in Senegal. The Results Framework was developed to measure all the PDO areas using measurable indicators available at the time of project design. The technical design of the project drew from globally recognized approaches for developing effective HE interventions that are aligned with international best practice. The component activities as inputs to achieve the PDO were comprehensive and selected in close collaboration with the government in order to provide the means at the national and institutional levels to bring about maximum improvements in the areas of project focus - efficiency, quality, accountability and oversight. The design and preparation activities provided a sound foundation for the project. The government also used the project to shape its quality assurance mechanism. The project design included a comprehensive M&E system set-up and operated as part of the project providing the monitoring data to guide implementation and make implementation adjustments if necessary. (See additional details under the M&E section.) The targeted project beneficiaries for capacity development were project supported HEI education managers, researchers, accreditation staff, and academics as well as the students attending the Institut Superieur d’Etudes Professionnelles (Tertiary Education Vocational Institute).
66. Implementation Arrangements. The implementation arrangements gave the Minister of Higher Education and Scientific Research overall responsibility for sector and policy coordination. The minister of MOHESR was the chair of the Steering Committee consisting of the rectors of universities, representatives from the private sector, the DGCBEP under the Ministry of Habitat, Construction and Hydraulic, the private education providers, and the Ministry of Economy and Finance. The DGHE was the secretariat for the Steering Committee.
24 Lesson from the Senegal Higher Education Project (SN-PA-2373) that were considered in the project design were: (i) it is prudent to phase in reform, to offer reform options and be selective in deciding which reform issues should be addressed in the project design to ensure achievability; (ii) politically risky operations require careful analysis so as to understand how interventions can positively or negatively affect potential stakeholders, and (iii) early involvement of all stakeholders, particularly students and teachers, in design is essential for buy-in of the project design.
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The DGHE, a semi-autonomous body within the ministry, provides technical expertise to the minister to manage and coordinate the tertiary education system. It was to implement and manage the negotiation of performance- based contracts, supervise the performance contracts, decide on HEIs budget allocation, be responsible for the mapping of new institutions, and develop the information and statistics system. The DGHE also was responsible for liaising with the DAGE of MOHESR in the overall procurement, financial management and disbursement for the project and DGCBEP managed procurement of construction as well as universities in charge of managing procurement activities under their PBCs. The HEIs were to be in charge of the implementation of their respective activities. The Senegal tertiary education system provides for HEI autonomy and they receive block grants from the government for their functioning. Each university had a PBC management team working under the responsibility of the Rector and comprised: (i) a coordinator, (ii) a procurement focal point, (iii) and financial management specialist and (iv) a monitoring and evaluation specialist which also acted as the safeguard’s compliance focal point. Once PBCs were approved by the government and the Bank, each HEI oversaw procurement and financial management of their PBCs.
67. Risks and Mitigation Measures. Key risks and appropriate mitigation measures were identified during preparation. The overall risk was rated high because of challenges in the form of political unrest, capacity, governance related to HEIs and PBCs and financial management (FM) and procurement implementation were anticipated. The project activities were directly related to risk mitigation through the: (i) inclusion of technical assistance and development of a procedures to increase capacity to implement PBCs; (ii) clearly defining the roles and responsibilities of the HEIs and the Ministry so as to not lose the advantages of autonomy while improving coordination and accountability; (iii) recruitment of experienced FM staff in the DAGE, development of an FM manual of procedures, set up of an accounting software for the project, and inclusion of FM arrangements of the HEIs in performance-based contracts; and (iv) recruitment of a procurement specialists, development of a procurement handbook for the DAGE and universities, and capacity building through equipment and training of all staff involved in procurement.
B. KEY FACTORS DURING IMPLEMENTATION
68. Project implementation progress was rated moderately satisfactory and satisfactory throughout implementation. There were various factors that played a role in the challenges and successes of the project.
69. Factors subject to implementing entities control. Initially, project effectiveness was delayed for three months from September 10, 2011 to December 10, 2011. The government needed additional time to meet the conditions of effectiveness related to: (i) the recruitment of the Director in charge of the financing of higher education institutions, (ii) adoption of the project Administrative and Operations Manual, and (iii) the acquisition and the installation of the financial management software.
70. Once implementation began, the project benefitted from a project coordination team with previous experience in Bank operations that were able to effectively manage each of the project’s components. Moreover, the project benefited, early on, from the governance reform efforts in which the DGHE was established and fully responsible for overseeing and piloting the development of the higher education sector. The challenge with the DGHE was the fact that there were six directors over the course of seven years of implementation. However, the
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current director was recruited from within academia five years ago and this has had a positive impact on management and stability of the DGHE.
71. There were challenges related to reforming the laws that govern institutions. In 2013, the government conducted large consultations that aimed at building consensus on the key and important reforms within higher education. The stakeholders involved were academics, civil society organizations, parents and private sector participants. The consultations led to 78 recommendations which were validated by the Presidential Council in August 2013. Based on this, Parliament, in 2014, adopted a law reforming the governance of institutions. However, implementing the law became challenging due to resistance from stakeholder (even after the broad consultations), particularly related to the composition of the Board of Directors. In 2015, the law was revised and adopted after additional stakeholder consultations. In 2017, the decrees written, especially the decree that governed the Board of Directors for institutions. As indicated, the University of Thies has established a Board of Directors.
72. Factors subject to World Bank control. The project benefitted from the fact that there was a consistent World Bank team that supported implementation. In addition, highly experienced consultants provided technical assistance in the reform of higher education systems, quality assurance, and civil works. The team consistency was effective in ensuring continuity of the project operation. There was no formal mid-term review (MTR) of the project. While a formal MTR did not take place, it is important to note that the two project task team leaders (TTLs) were always based in-country so there was day-to-day interaction with the government implementation team which helped to facilitate resolution of implementation challenges as they arose.
73. Exogenous factors. The project included US$26 million counterpart financing of which, US$15 million were earmarked for civil works which was to be provided by the MOEF. The government spent US$24.1 million. As indicated, early in project implementation, the government and the Bank agreed to raise the standards and quality of the facilities rehabilitation and construction program. This, however, led to increases in construction costs that had to be covered by the counterpart funding and required an allocation of additional counterpart funds from the MOEF. In 2017, the project was experiencing challenges in receiving the needed counterpart funding to complete construction. This was not unique to the TEGFR project. The provision of counterpart funding was a challenge for the overall Bank portfolio in Senegal due to the fact that the government’s commitments were greater than the resources available. The delays in counterpart funding led to the downgrading of implementation status from satisfactory to moderately satisfactory and a specific downgrade of the counterpart funding to unsatisfactory specifically. The delays had the greatest impact on the rehabilitation and construction at the Universities of Thies and Ziguinchor and at ISEP at Thies. However, by the time the project closed in December 2018, the government had negotiated additional counterpart funding (approximately US$20 million total) in installments based on negotiations between the Bank and the government. By the time of submission of this ICR, the project construction was completed as follows: (i) UCAD construction of an amphitheater was 100 percent completed and is fully functional (ii) UGB construction of an extension was 100 percent completed and fully operational; (iii) University of Bambey construction of an extension was 100 percent completed and fully operational; (iv) ISEP de Thies was completed with government funding after the project closing date and students will begin using the new building at the start of the new academic year in October 2019; (v) University of Thies construction is ongoing and the government has allocated the funds to carry out the work—it is expected that the
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works will be achieved in December 2019; and (vi) University of Ziguinchor construction was halted due to limited funds to complete the project. As indicated above, the national budget for 2020 has allocated the needed funds to complete the civil works at Thies and Ziguinchor.
74. As indicated earlier, there were students and teacher strikes’ during the academic years of 2014-15 and 2017-18 that led to shortened academic years which, in turn, led to a situation in which students only took one exam thereby reducing their opportunities for passing which impacted achievement of a PDO indicator. In addition, there were macroeconomic factors that contributed to some of the project counterpart financing. Despite strong macroeconomic growth and prudent fiscal management and accountability, the government average budget deficit was about 4.5 percent of GDP between 2011 and 2018. Public debt continued its upward trend due to cash flow below the line. For instance, public debt reached 60.6 percent of GDP in 2016. These challenges may have delayed the counterpart funding needed to complete the construction work. Furthermore, there were growing fears of terrorism attacks in West Africa after the tragic events in Mali and Burkina Faso in November 2015 and January 2016, respectively. As a response, the Senegalese government increased the military means and intelligence arm. Threats of terrorism attacks could reduce not only activities in the tourism sector and investment, but also increase government budget deficit by forcing the government to expand its military expenditures..
IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME
A. QUALITY OF MONITORING AND EVALUATION (M&E)
M&E Design
75. The links between the inputs, outputs, and outcomes and the PDO were sound (as shown in Figure 1). The PDO was clearly specified at appraisal and remained the same throughout the life of the project. Five PDO- level indicators and ten intermediate outcome indicators were defined at appraisal to measure project outcomes.
76. The M&E design was developed to monitor and report on progress toward meeting the targets of the PDO and intermediate indicators in the Results Framework (RF) through regular routine monitoring and reporting by the DGHE. The Integrated Higher Education and Research Management System (SIGERS) was supported to capture the needed data for reporting on the various project indicators as well as publishing a yearly statistical yearbook. DGHE was also responsible for monitoring the implementation of the PBCs. The responsibility for overall quality assurance of programs and institutions was with the NQAA. As indicated previously, a series of studies were conducted to evaluate areas such as service delivery quality, research system management, bursaries allocations, student satisfaction survey, scholarships, etc.
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M&E Implementation
77. Reporting of data for the RF indicators was systematically done throughout the life of the project. The DGHE and universities analyzed and reported on results framework indicator achievement on a semiannual basis. The universities also provided progress reports on the PBCs and there were external reviews of PBC implementation to ensure that the targets were being met. As indicated above, NQAA has been fully institutionalized and performed (and continues to perform) all of the monitoring and evaluation required of a higher education quality assurance mechanism. The DGHE also contracted technical assistance to conduct the studies25 were expected to be produced under the project. In particular, the project conducted a thorough audit of the scholarships program that led to a refocus of the program to one of merit and equity. The SIGERS is fully operational and some basic business objects are already implemented—the National Student ID (INE), student file, institutions, training, study allowance. The Campusen platform gives access to training.campusen applications (management of public and private training courses, creation of the institutions' identifier), foreign scholarships.campusen (management of scholarship applications for studies abroad), gesper.campusen (ESRI personnel file management), ine.campusen (management of the INE and the student's file). In addition, applications for the management of certain processes such as student.campusen (student area allowing him to access his file and communicate with the central administration), orientation.campusen (management of orientation for new graduates) and SenBourse (management of study grants and scholarship award and renewal procedure) are available.
M&E Utilization
78. Data was made available regularly for the results framework and was used to inform the analysis undertaken for the ICR. The Ministry, thanks to the SIGERS, has centralized all the data on a single platform and regularly monitors the workforce by university, faculty and sector. The SIGERS data has also been used for the publication of an annual statistical yearbook thereby meeting the target of one of the intermediate indicators. The system implemented at the level of the IT Resource Center within each University has made it possible to collect data and report on the implementation of performance contracts which helps DGHE to monitor the PBCs and is used by universities to inform progress on their performance indicators. Again, NQAA has used the self- evaluation forms provided by HEIs to conduct accreditation reviews of both programs and institutions and will continue with the accreditation process given the institutionalization of the NQAA. DGHE will continue to monitor the PBCs and university budgets will be allocated based on achievement of specific university indicators.
25 The studies conducted were: (i) evaluation of the effectiveness of the Dakar and Saint Louis (COUD and CROUS); (ii) assessing the effectiveness and efficiency of the scholarship allocation system and its management; (iii) feasibility study for the implementation of the ISEP network (RISEP); (iv) evaluation of financial management, contracting and university monitoring and evaluation; (v) feasibility studies of a second higher school in Dakar; (vi) auditing university resources and expenditure; (vii) auditing staff and the university management system; and (viii) audit of the mobilization and management of tuition fees in universities.
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Justification of Overall Rating of Quality of M&E
79. The overall rating for M&E is substantial. The well-developed design, implementation, and utilization of the system allowed for consistent reliable tracking of progress made under the project, including utilizing data analysis to inform DGHE oversight of universities, university decisions on developing their PBCs, and monitoring progress toward achieving the goals of the PBCs. Moreover, the PBCs are being used for more outcome-based monitoring. Data is also now available for annual publication in a statistical yearbook that allows for greater transparency of data. In addition, capacity was built within the MOEHR through the use of existing monitoring system and results, including those from the analytical work carried out which played an important contributing role to inform government policy decisions related to improvements in the scholarships program, expanding the ISEP network, and monitoring and further institutionalization of the PBCs. This is particularly true as it relates to allocating budget based on approved PBCs.
B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY COMPLIANCE
80. Safeguards. The project was rated a Category ‘B’ partial assessment and OP/BP 4.01 “Environment Assessment” was triggered due to the construction of ISEP, and rehabilitation and expansion the Universities of Thies, Bambey, Ziguinchor, and Saint-Louis. An Environmental Social Management Framework (ESMF) and a Resettlement Policy Framework (RPF) were prepared. In addition, specific Environmental Management Plans (EMPs) were included as part of the bidding documents for contractors. They were disclosed in the World Bank InfoShop and in-country as required. Safeguards were monitored consistently during project implementation and ISRs were consistently rated moderately satisfactory and satisfactory. Safeguards were largely in compliance throughout the project period. However, due to the ongoing monitoring of the safeguards, a resettlement issue arose in 2017 which warranted compensation for land. To deal with the complaint, a resettlement study framework was developed. The government sent a safeguards specialist to review the complaint and to calculate the appropriate compensation. The Bank approved the proposal and compensation amount. The individual was compensated by the government in the amount of 77,471,140 FCFA (US$ 136,922.49).
81. Financial management. The financial management (FM) performance rating remained satisfactory and moderately satisfactory throughout the life of the project. Under the original project disbursement arrangements there were seven designated accounts, one for each of the five public universities participating in the project, one for the DAGE, and one for MOHESR to be managed by the Directorate of Debt and Investment. All used the government’s integrated financial management information system called Systeme Compatible OHADA (SYSCOHADA) which was the system used in West African Francophone countries. Capacity development workshops were conducted by the Bank FM specialists for the FM staff at the universities and DAGE to help with implementation of the FM requirements. There were ongoing challenges for timely submission of the interim financial reports (IFRs) primarily due to the capacity of the universities to consolidate and submit the financial data with without delay. However, the IFRs were submitted and the implementing agencies were all in compliance with the financial covenants of the Financing Agreement. The required audits were submitted to the World Bank in accordance with the Financing Agreement and over the project period, the auditors’ opinions were unqualified (clean). The final audit report was received on June 30, 2019 and of unqualified opinion. The total International Development Association (IDA) project financing was US$101,300,000 equivalent with a total
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disbursement of approximately US$90.1 million equivalent with approximately US$2.73 million undisbursed/cancelled. There was a total loss of approximately US$8.47 million due to SDR/US$ exchange rate fluctuation.
82. Procurement. Procurement was consistently rated satisfactory. During the project, World Bank procurement staff provided training to the implementing units as well as for sub-project implementation teams to ensure compliance with the procurement guidelines. TEGRG migration to the Bank’s Systematic Tracking of Exchanges in Procurement (STEP) took place in June 2017 with procurement activities being included in the STEP platform. Procurement plans were updated during Bank supervision missions to accommodate adjustments in construction delays experienced at the HEIs.
C. BANK PERFORMANCE
Quality at Entry
83. The project preparation team ensured that the project design was closely aligned with the (2011-2016) (TESDP 2011-2016) and the World Bank’s CPS of 2007-2010 and 2013-2017. The design was sound, the PDO was precise, and key indicators were appropriate for measuring progress toward achieving the PDO and the medium-term goals outlined in the results chain. The design took into consideration the recommendations from peer reviewers and lessons learned from the other education projects implemented in Senegal and other World Bank-supported HE projects, particularly related to the design of PBC mechanisms. Furthermore, conclusions of the 2010 Public Expenditure Review of the Senegal Tertiary Education Sector were taken into considered specifically: (i) the necessity to improve the performance of HEIs through an effective implementation of the LMD reform and the implementation of a quality assurance system; (ii) change the way HEIs are financed from an input-based mechanism to a system that links funding to performance; and (iii) revise the public expenditure priorities by increasing the share of public funding that is allocated to the core university missions of teaching, research and service and lowering the higher share to social expenditure. The preparation team identified the appropriate risks, incorporated design features to mitigate them, and included the relevant technical specialists to develop the project. Moreover, preparation was a consultative process with various stakeholders in the sector such as faculty, staff, and students and parents at the HEIs as well as MOHESR and MOEF staff.
Quality of Supervision
84. Supervision missions were semi-annually, staffed with education and fiduciary staff and consultants. The project team was actively engaged in supporting the government in its efforts to implement the project. Whenever implementation challenges arose, the World Bank team worked with the government to find appropriate solutions that would not compromise the integrity of the design. The supervision teams consistently reported on FM, procurement and safeguards progress during supervision missions and worked with the DGHE, universities and other implementation staff to build their capacity in these areas. As indicated above, safeguards compliance was monitored regularly. The missions also systematically documented project progress in aide memoires, back-to-office reports, and ISRs, all of which kept the World Bank management informed of progress and provided the foundation for the ICR analysis. Key to the project’s achievements was the consistent supervision by the World Bank team in-country and strong on-going sector specific technical assistance for the various implementation units. Moreover, the World Bank’s willingness to respond to the
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government’s request for project extensions led to the completion of the project as designed and the institutionalization of many project activities. However, as indicated, there were data inconsistencies in the 2017 restructuring documentation, as well as in the final two ISRs.
Justification of Overall Rating of Bank Performance
85. Based on the analysis above, overall World Bank performance is rated moderately satisfactory.
D. RISK TO DEVELOPMENT OUTCOME
86. The risk to sustaining the development outcome is moderate. This rating is based on the fact that project activities have been institutionalized as indicated above. The political economy and lack of ownership risks identified at appraisal have been effectively mitigated under the project through the buy-in from the MOHESR, universities, and students for the LMD, quality assurance measures under NQAA, institutionalization of DGHE, the ICT and institutional connectivity, etc. Similarly, the capacity risks identified have also been effectively mitigated through the institutional strengthening at MOHESR and at the universities through the implementation of PBCs. Quality in the higher education system has improved. NQAA is functioning with strengthened capacity and its reach to institutions has expanded. The inspection of both public and private HEIs has also been regulated. ISEP provides an alternative two-year technical program that this has early links with industry that will need to be fostered going forward. Moreover, there is ongoing support for the higher education sub-sector within the donor community—in particular, the Korean government is supporting short term training in ICT at the ISEP of Thies, the French Development Agency is financing three new ISEPs in Bignonia, and Richard toll with a specific focus on agriculture and poultry. The Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) (German Corporation for International Cooperation GmbH) at the end of the project contacted the Bank to obtain information on the construction of an ISEP. They started the studies to finance an ISEP on renewable energies in Mbacke. The average cost of each ISEP is estimated at US$10 million. They are of a smaller size than the ones financed by IDA. The government plans to support US$10 million in performance contract financing for the five universities. In terms of investments, in 2020 the government will invest more than US$50 million to complete the Thies and Ziguichor projects and continue the ISEP expansion plan. This all contributes to the likelihood of TEGFR interventions being sustained.
87. There is an overarching risk to development outcomes related to the fiduciary constraints given the substantial growth in budgets for teaching and research and for student scholarships and student aid. The government continues to discuss these issues as the higher education system expands to meet the 21st century skilled manpower needs of Senegal. To address the student scholarship and student aid needs, the government, in consultation with the Bank, is considering the tuition and student loan programs that provide sustainability for the system.
V. LESSONS AND RECOMMENDATIONS
88. Lesson 1. Establishing a solid governance structure for higher education is a critical component to ensuring the institutionalization of the governance structure and requires strong commitment by the
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government. In the case of Senegal, the project helped support the establishment of the DGHE that is responsible for overseeing the development of the higher education sector, the establishment of the NQAA, the implementation of PBCs and oversaw the writing of the law for the governance of higher education institutions. Instrumental in achieving this was the appropriation and commitment of the actors that facilitated the implementation of the reform which led to the autonomy of the universities, the performance contracts, the setting up of the NQAA. These achievements provided a strong foundation for the governance system and are all important components for sustaining a strong higher education system. The MOHESR was also highly committed to ensuring the appropriate governance structure was institutionalized. They developed the higher education strategy and committed the ministry to ensuring the bold reform agenda was implemented with the support of TEGFR. There was also a strong recognition on the part of the Bank and government that changes in the higher education culture would be necessary if the system was to become more efficient. This was begun through the introduction of PBCs and the beginnings of results-based financing, DGHE oversight of PBCs, and NQAA quality assurance.
89. Lesson 2. The establishment of a M&E system should always be prioritized as a way to ensure that the achievements and challenges under a project are well-documented and monitored in order to allow government and project teams to fine-tune activities in order to enhance their overall effectiveness and impact. The TEGRF project successfully established a sound M&E system and the numerous studies and evaluations which were undertaken during the life of the project were essential in further fine-tuning project- supported activities through the PBCs as well as reporting project achievements.
90. Lesson 3. Effective accreditation mechanisms are essential for ensuring quality of HE programs and institutions. The NQAA through its own capacity development, has evolved into an effective accreditation body. NQAA has also been open to external evaluation of their performance and have connected with other regional accreditation bodies to continue to build capacity. This has given NQAA insights into how to improve their own processes and procedures. An additional lesson learned related to the accreditation mechanism was that training and monitoring in the self-assessment process of higher education courses and programs is essential to HEIs in the preparation of their self-evaluation reports as well as the organization of their evidence. Recommendation. Going forward, NQAA will need to increase its capacity to respond to the increased demand for accreditation of HEI programs and institutions particularly with the expansion of the system.
91. Lesson 4. Performance-based contracts are an important mechanism to improve dialogue, transparency, and monitoring of higher education institutions. The use of PBCs within TEGFR proved to be an important mechanism for higher education institutions to negotiate annual budgets based on targets and results. The management culture with universities is now shifting from an inputs-based orientation to one focusing on results. As previously mentioned, the broader impact has been that PBCs are recognized by the MOEF as best practice and they are recommending the use the PBC framework to improve the oversight and efficiency of delivery in other sectors within Senegal.
92. Lesson 5. Strong two-year technical programs are a necessary ingredient for providing skilled manpower for within the strategic/priority sectors. The project focused on strengthening the ISEP in Thies to provide a model for to other ISEPs. The Bank’s involvement in introducing the ISEP model, through the project,
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was a factor in mobilizing financial partners and facilitating political dialogue related to two-year technical programs. As a result, there are additional ISEP projects, with donor support, underway in Senegal which are now forming a network of ISEPs.
93. Lesson 6. Stable institutional arrangements are essential for ensuring project implementation and impact. The project was well designed, and the adequate implementing arrangements were put in place for implementation. The project greatly benefitted from the design closely aligned with overall objectives: (i) lessons learned from previous higher education projects; (ii) experienced Bank team; (iii) government’s ownership or political will; (iv) stability – the Minister and his team (Director General and directors at different levels) were maintained for the past five years until the end of the project; and (v) establishment of DGHE that was responsible for finance management and piloting the development of the higher education sector, guiding and monitoring implementation. This leadership was effectively overseeing the project, fully supportive and facilitated the reforms and their implementation as well as coordination with University community.
94. Lesson 7. Buy-in of academic institutions is critical. The university rectors were also on board with the reforms and enthusiastic to see them through to move away from the predicament that existed at project preparation and reach their specific institutional objectives. Their commitment strengthened the coherence of the reforms. Moreover, the Bank showed flexibility in adjusting the volume of construction during implementation to take into account the increased needs of the universities for more facilities. While this led to challenges related to counterpart funding, this flexibility contributed to improving the learning environment and keeping the government’s momentum high to honor its commitment to complete construction and rehabilitation works within three months (March 2019) after project closure. An indication of continuous political will and . sustainability.
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ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS
A. RESULTS INDICATORS
A.1 PDO Indicators
Objective/Outcome: Enhance efficiency Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Promotion rate at grade one Text UCAD: 30%; UGB UCAD: 60%; UGB UCAD: 60%; UGB, UCAD: 45.42%; UGB by university (Saint-Louis): 70%; (Saint-Louis): Saint Louis: 90%; (Saint-Louis): 75%; Bambey: 80%; Thies: 90%Bambey: Bambey: 90.0% ; Bambey: 75.36%; 70%; Ziguinchor: 57% 90%Thies: Thies: 80% ; Thies: 88.53%; 80%Ziguinchor: 80% Ziguinchor: 80% Ziguinchor: 71.78%
06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018
Comments (achievements against targets): Overall progress was achieved in the promotion rates though 4 out of 5 universities did not achieve their targets. University of Thies: Exceeded the target by 8.53% ( 26.5% increase over the baseline). University of Ziguinchor: Was short of the target by 8.22% (25.9% increase over the baseline). University of Dakar: Was short of the target by 14.58% (51.4% increase over the baseline). University of Bambey: Missed the target by 14.64%. Gaston Bergier University, St. Louis: Missed the target by 15% (7.1% increase over the baseline). Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
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Objective/Outcome: Enhance quality Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Academic programs that Percentage 0.00 90.00 90.00 133.00 meet the minimum quality standard as set 06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018
Comments (achievements against targets): Target exceeded by 47.7%. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
Objective/Outcome: Enhance Oversight Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Universities with Percentage 0.00 80.00 80.00 100.00 performance-based contracts negotiated and overseen by 06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018 GHED
Comments (achievements against targets):
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Target exceeded by 20 percentage points. All five of the public universities overseen by DGHE achieved their respective targets. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
Objective/Outcome: Enhance accountability Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Institutions that achieve at Percentage 0.00 80.00 80.00 100.00 least 80% of the annual targets set in the 06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018 performance-based contracts
Comments (achievements against targets): 100 percent of the targeted universities reached annual targets in their respective PBCs exceeding the target of 80% by 20%. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
Objective/Outcome: Improved learning Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Direct project beneficiaries Number 68322.00 86000.00 86000.00 191095.00
09-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018
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Female beneficiaries Percentage 33.00 43.00 43.00 40.00
Comments (achievements against targets): Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
A.2 Intermediate Results Indicators
Component: Strengthening the governance of the tertiary education system
Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Tertiary institutions with a Percentage 0.00 80.00 80.00 20.00 Board of Director (Conseil d'Administration) that 06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018 approves the annual budget
Comments (achievements against targets): Target not achieved. Only the University of Thies established the Board of Directors. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
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Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion GDHE is implemented to (i) Yes/No N Y Y Y coordinate the implementation of the 06-Sep-2011 30-Jun-2016 30-Dec-2018 31-Dec-2018 tertiary education program, (ii) provide oversight for PBC implementation, and (iii) monitor the status of reforms
Comments (achievements against targets): Target was successfully achieved. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Budget allocated based on Percentage 0.00 15.00 15.00 15.00 performance-based contracts 06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018
Comments (achievements against targets): Target achieved 100%. Over the life of the project, the MOHESR/DGHE was to begin replacing project funds with counterpart funds for implementation of the annual PBCs from a baseline of 0 to the end target of 15 percent. By project closing, the percentage of PBC budget provided by the DGHE, for implementation of the PBCs, had reached the target of 15 percent thereby meeting the target. However, the more
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substantial achievement of the project was that upon completion, the use of PBCs had been institutionalized and government funding is now 100 percent of the HEIs annual budgets based on PBCs.
Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion All tertiary education Yes/No N Y Y Y institutions use the new financial law to manage their 06-Sep-2011 30-Jun-2016 30-Dec-2017 30-Dec-2018 budget
Comments (achievements against targets): Target 100% achieved. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Annual tertiary education Yes/No N Y Y Y
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statistics report produced 06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018
Comments (achievements against targets): Target 100% achieved. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
Component: Improvement of the effectiveness of the Tertiary education institutions
Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Repeating students in year 1 Percentage 40.00 20.00 20.00 29.80 in UCAD 06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018
Comments (achievements against targets): Target exceeded by 9.8%. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
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Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Undergraduate programs Number 0.00 100.00 100.00 100.00 elaborated according to LMD with complete description 06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018
Comments (achievements against targets): Target achieved 100%. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion Teachers having followed Percentage 0.00 50.00 50.00 100.00 training in the LMD requirements for teaching 06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018
Comments (achievements against targets): Target exceeded by 100% Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
Indicator Name Unit of Measure Baseline Original Target Formally Revised Actual Achieved at
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Target Completion Students enrolled in Number 0.00 3000.00 3000.00 950.00 programs designed with private sector in the ISEP 06-Sep-2011 30-Jun-2016 30-Dec-2018 30-Dec-2018
Comments (achievements against targets): Target not achieved. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
Formally Revised Actual Achieved at Indicator Name Unit of Measure Baseline Original Target Target Completion The ISEP is functional Yes/No N Y Y Y
06-Sep-2011 06-Sep-2011 30-Dec-2018 06-Sep-2011
Comments (achievements against targets): Target achieved 100%. Although this indicator was not revised during the life of the project, the target date was revised to align with the new closing date.
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A. KEY OUTPUTS BY COMPONENT
Objective/Outcome 1: Enhance the efficiency of the higher education system
Outcome Indicators 1. Promotion rate for the first year by university (percent)
The achievement of enhanced efficiency was achieved through a combination of reducing the overall number of years to get a degree with an increase in short-term tertiary education programs, establishment of ICT networks, and improved facilities for better access and an improved learning of environments at the project universities. By project closing, four out of the five public universities missed the institutions targets, overall, progress was achieved in the promotion rates. This achievement was laudable given the fact that for academic year 2014-2015 and 2017-2018, there were student and teacher’s strikes that led to shortened academic years which, in turn, led to a situation in which students only took one exam thereby reducing their opportunities for passing. This is significant because within the university system in Senegal, promotion rates are based primarily on the fact that students can fail an entire year having failed just one course. Therefore, the fact that students could only take one exam for all courses had considerable impact on the results achieved. 1. Repeating students in year 1 by university (percent) 2. Students enrolled in programs designed with private sector in the Intermediate Results Indicators ISEP 3. ISEP is functional Key Outputs by Component (linked to the achievement of the Objective/Outcome 1)
The intermediate indicator that supported this PDO was to reduce the “repeating students in year 1 in UCAD from 40 percent in 2010 to 20 percent in 2018”and the average of other institutions from 16 percent in 2010 to 10 percent in 2018. By project closing, UCAD had reduced the repetition of year 1 students from a baseline of 40 percent in 2010 to 29.80 percent missing the target by 9.8 percent. The expected reduction for the other four public universities, from 16 percent in 2010 to 10 percent in 2018, was not achieved over the life of the project due to numerous student-teacher strikes that impacted the academic year cycle and administration of required exams for passing. By project closing, the average had increased from 16 percent to 20.83 percent for 2018.
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Sub-component 2.2: Diversifying and increasing access to short-term tertiary Education. The two intermediate indicators related to ISEP that support this objective “students enrolled in programs designed with private sector in the ISEP and ISEP is functional” were both achieved. ISEP is fully functional with full capacity to now be able to reach approximately 3,000 learners each year. By project closing, there were 950 students enrolled in program designed by the private sector.
The project supported the development of a decree establishing ISEPs which provided the organization and operating regulations for the ISEP. The focus of the two-year programs has been on providing skilled manpower for some of the strategic sectors for Senegal such as agriculture, water and energy, mining, ICT and telecommunications, and management. During the project period, a total of 400 students graduated from ISEP, nearly 50 percent of whom are female. ISEP insertion rates continue to be very satisfactory at approximately 70 percent. In addition, nearly 15 percent of graduates are self-employed. Similarly, the institute's promotion rate is among the best in the system (99 percent). ISEP also has a fairly innovative system for monitoring graduates. ISEP has set up a tracer system for the leavers to determine their professional insertion both for six months and one year after their graduation from the ISEP. This system of follow-up in important for determining the relevance of the training for the employment market as well as the time taken to obtain the first job. NQAA provides quality assurance for the programs being offered through their accreditation process.
By project closing, all five of the universities developed an ICT network that provides interconnectivity of all the five public universities. Servers were installed at each of the five universities and WiFi networks exist on all the five campuses. The IT Resource Centers at each University made it possible to monitor the implementation of performance contracts and to monitor and inform their performance indicators.
Sub-component 2.3: Improving the learning environment. Although not an intermediate indicator, the project supported the rehabilitation and expansion of buildings to improve the learning environment and increase access to the universities. The construction consisted of: Thies University—construction of three technologic schools, rehabilitation of the health school, and the rectorate as well as an auditorium and library; UGB Saint-Louis—construction of the education science and sports school; University of Bambey—construction of 1 amphitheatre, 14 classrooms auditoriums, 10 offices for teachers and 2 laboratories; University of Ziguinchor—2 blocks of facilities for 2 schools and 1, 500 seat amphitheatre; UCAD Dakar—rehabilitation of 6 amphitheaters, rectorat and the baccalaureate office and ISEP de Thies—new facilities for the ISP. By project closing (i) UCAD construction was 100 percent completed and is fully functional (ii) UGB construction was 100 percent completed and fully operational; (iii) University of Bambey construction 100 percent completed and fully operational; (iv) ISEP de Thies was completed with government funding after the project closing data and students will begin using the new building at the start of the new academic year in October 2019; (v) University of Thies construction is ongoing with government funds allocated for completion—it is expected that the works will be achieved in December 2019; and (vi) University of Ziguinchor construction was halted due to limited funds to complete the project however, the national budget for 2020 has allocated the needed funds to complete the works.
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Objective/Outcome 2: Enhance the quality of the higher education system
1. Academic programs that meet minimum quality standards as set by Outcome Indicators the National Quality Assurance Authority (percent) The achievement of enhanced quality was achieved through a combination of interventions related to establishing the NQAA which included establishing a board, secretariat, developing evaluation tools, and recruiting and training experts in performance evaluation as well introducing the ensuring the implementation of LMD and training of teachers to improve the quality of the academic programs. Over the life of the project, the number of academic programs increased from 0 in 2010 to 133 in 2018 thereby exceeding the target of 90 by 47.7 percent. NQAA has assessed and approved 88.4 percent of the academic programs that meet the minimum standards set up by the NQAA. 1. Number of undergraduate programs elaborated according to LMD with complete description Intermediate Results Indicators 2. Percentage of teachers having followed training in the LMD requirements for teaching Key Outputs by Component (linked to the achievement of the Objective/Outcome 2)
Sub-component 1.1: Operationalize Governance Bodies. NQAA accredited 36 private higher institutions out of 139 applications submitted. In 2016, NQAA, made 667 recommendations to improve the relevance of the academic programs and the quality of higher education. By project closing, NQAA had been instrumental in setting-up quality units at every public and private higher education institutions and conducted more than 100 training seminars in evaluation and quality assurance. NQAA has recruited and trained almost 200 evaluators and organized 500 self- evaluations by public and private HE institutions. It evaluated 138 private institutions and licensed 78 of these. NQAA has assessed the self- evaluations of 133 public institutions and accredited 74 of these institutions.
Sub-component 1.4: Sector Knowledge Development Generation. There were 152 undergraduate programs elaborated according to LMD represents 100 percent of the undergraduate LMD courses. There were 2,218 teachers trained in LMD standards and university pedagogy. On- line teaching programs were also developed at universities. There were 1,553 teachers (approximately 70 percent) that were trained in the use
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of ICTs in teaching strategies. In addition, there were 1,325 teachers (approximately 59.73 percent) that were trained to put courses on-line. To ensure the access and utilization of the on-line courses, as well as achievement of the university PBC targets, universities, with project support, implemented a one computer/one student policy by providing 51 percent of students in public universities with individual computers.
Objective/Outcome 3: Enhance the oversight of higher education system
1. Universities with performance-based contracts negotiated as set by Outcome Indicators DGHE (percent) Enhanced oversight was achieved through a strategic combination of interventions to the strengthen the governance of the higher education system first through the establishment of the DGHE that had the responsibility oversee the development of the higher education sector. Secondly, by giving the DGHE the responsibility to negotiate and monitor HEI PBCs. By project closing 100 percent of the five project public universities had negotiated performance-based contracts with the DGHE exceeding the target of 80 percent. An internal evaluation of each annual PBC was undertaken by the DGHE and the results were used to inform the decision making for financing of the subsequent year’s PBC.
1. A DGHE is implemented to coordinate the implementation of the tertiary education program, provide oversight for PBC implementation, and monitor the status of reforms Intermediate Results Indicators 2. Tertiary institutions with a board of directors (Counseil d’Administration) that approve the annual budget 3. Budget allocated based on performance-based contracts (percent) Key Outputs by Component (linked to the achievement of the Objective/Outcome 2)
Sub-component 1.1: Operationalizing governance bodies. The DGHE was created by decree in March 2011 and became fully operational in 2013 with increasingly more effective oversight. The DGHE elaborated strategic plans for higher education vis-à-vis the demand for professional and high-level skills in the economy as well as advised on the establishment of private HE institutions. The DGHE is now analyzing and approving annual HEI budgets. They worked with the five public universities that were included in the project on the plans and budgets for the
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PBCs and monitored and oversaw their implementation. Over the life of the project, the MOHESR/DGHE was to begin replacing project funds with counterpart funds for implementation of the annual PBCs from a baseline of 0 to the end target of 15 percent. By project closing, the percentage of PBC budget provided by the DGHE, for implementation of the PBCs, had reached the target of 15 percent thereby meeting the target. However, the more substantial achievement of the project was that upon completion, the use of PBCs had been institutionalized and government funding is now 100 percent of the HEIs annual budgets based on PBCs. As indicated above, the PBCs are considered best practice.
Over the life of the project, the percentage of tertiary institutions with a Board of Directors (Conseil d’Administration) that approves the annual budget increased from a baseline of 0 in 2010 to 20 percent by 2018 missing the target of 80 percent by 60 percent. Although the target was missed, the laws are now in place for all universities to establish their Boards of Directors. Each of the five universities have established management teams and the University of Thies has a Board of Directors established. It should be noted, that the government promulgated Law No.2015-26 (December 28, 2015) reforming the governance of higher education institutions and in 2017, wrote the decrees governing the Board of Directors. This law separated management functions from academic functions. Pending the establishment of Boards of Directors, whose guidelines are subject to the approval by the government, the universities have set up management teams to validate work plans and monitor budget implementation. This a substantial achievement given the fact that getting consensus on the laws governing institutions proved challenging because of the need to involve all stakeholders in the decision-making process.
Objective/Outcome 4: Enhance accountability of higher education institutions
1. Institutions that achieve at least 80 percent of the annual targets Outcome Indicators set in the performance-based contracts (percent) Enhanced accountability was achieved through the introduction of PBCs which were five-year detailed action plans that included: (i) budgets covering outputs and outcomes to be achieved in a five-year period (ii) funding commitments for the first year by budgeting proposed activities and objectives; (iii) funding projections for subsequent years of the agreement; (iv) agreed targets; and (v) indicators to monitor progress. Adjustments were made yearly based on the achievement of targets. Based on an assessment by an independent auditor, 100 percent of the targeted universities reached the annual targets set by their respective PBCs exceeding the target of 90 percent. 1. All tertiary education institutions use the new financial law to Intermediate Results Indicators manage their budget (yes/no) 2. Annual tertiary education statistics reported produced (IRI)
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Key Outputs by Component (linked to the achievement of the Objective/Outcome 2)
Sub-component 2.1: Performance based contract. The PBC targets and achievements that were monitored annually were related to:
accountability in the utilization of public resources in line with their annual budgets. As indicated, the HEI budgets were monitored by the DGHE and they were audited to ensure the proper utilization. inputs to strengthen university management and accounting and finance systems as well as for staff to be able to implement the new financial law and the university budget. The project supported five annual training sessions for 70 managers and financial service agents (100 percent) in results-based management and capacity building to master new accounting software which is being used in the five target HEIs. In addition, there were 125 tuition agents (100 percent) that were trained in student registration and examination management so as to improve management in these areas. the establishment of computer systems and ICT. The five university PBC target of establishing computer systems and ICT has been successful. Universities were able to develop an ICT network that provides interconnectivity of all the five public universities. Servers were installed at each of the five universities and WiFi networks exist on all the five campuses. Moreover, IT Resource Centers at the level of each University and has made it possible to monitor the implementation of performance contracts and to monitor and inform their performance indicators. on-line teaching programs. The on-line teaching programs are provided through the Senegal Virtual University (SVU) for all higher education students. There were 1,553 teachers (approximately 70 percent) that were trained in the use of ICTs in teaching strategies. In addition, there were 1,325 teachers (approximately 59.73 percent) that were trained to put courses on-line. To ensure the access and utilization of the on-line courses, as well as achievement of the university PBC targets, universities, with project support, implemented a one computer/one student policy by providing 51 percent of students in public universities with individual computers. The computers, along with the connectivity, have provided students more flexibility in their academic pursuits.
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ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION
A. TASK TEAM MEMBERS
Name Role Preparation Atou Seck Sr. Education Economist, Task Team Leader Nathaie S. Manzberg Senior Council Wolfgang Chadab Senior Finance Officer Linda K. English Human Development Sector Leader Demba Balde Senior Social Development Specialist Almudena Mateos Merino Environmental Specialist Fatou Fall Samba Financial Management Specialist Maimouna Mbow Fam Senior Financial Management Specialist Victoria Gyllerup Senior Operations Officer Mamadou Mansour Mbaye Senior Procurement Specialist Jacques Lecuyer Consultant, Tertiary Education Governance Rosemary Bellew Consultant, Education Specialist Astou Diaw Ba Program Assistant
Supervision/ICR Hamoud Abdel Wedoud Kamil Task Team Leader Mamadou Mansour Mbaye Procurement Specialist Fatou Fall Samba Financial Management Specialist Joseph W. B. Bredie Team Member Felly Akiiki Kaboyo Team Member Jacques L'Ecuyer Team Member Sophie Naudeau Team Member Medou Lo Environmental Specialist
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Mame Semou Diouf Team Member Mouhamadou Moustapha Lo Team Member Setou Mamadou Diarra Team Member/ICR Efficiency Author Bernardo da Cruz Vasconcellos Team Member Mamadou Moustapha Ndoye Social Specialist Sandra F. Beemer ICR Author
A. STAFF TIME AND COST
Staff Time and Cost Stage of Project Cycle No. of staff weeks US$ (including travel and consultant costs) Preparation FY11 36.450 307,203.23 FY12 0 0.00
Total 36.45 307,203.23
Supervision/ICR FY12 7.125 83,408.32 FY13 5.875 91,809.16 FY14 7.354 105,031.95 FY15 19.110 93,018.43 FY16 12.591 104,446.47 FY17 14.115 99,258.76 FY18 17.213 122,907.80 FY19 8.725 110,228.94 FY20 3.625 21,962.70 Total 95.73 832,072.53
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ANNEX 3. PROJECT COST BY COMPONENT
(a) Cost by component
Total Total Project Project Percentage Project Original amount Revised Actual Cost @ Actual of Components (US$) Amount (US$) Amount (US$) appraisal cost Appraisal (US$) (US$) IDA GOVT IDA GOVT IDA GOVT 1. Strengthening of Governance 8.10 7.10 1.00 7.10 1.0 6.10 4.37 10.47 129.3 2. Improvement of effectiveness of Tertiary Education 85.00 60.00 25.00 94.20 25.00 84.00 19.73 103.73 122.0 3. Unallocated amount 34.20 34.20 0.00 0.00 0.00 0.00 0.00 0 127.30 101.30 26.00 101.30 26.00 90.10 24.10 114.20 89.7
Undisbursed IDA Amount at closing = US$2.7 million IDA credit loss due to exch. Rate SDR/US$ = US$8.5 million
(b) Financing Sources
Total Project Total Actual cost @ Percentage of Sources of Financing Project Cost Appraisal (US$ Appraisal (US$ m) m) Borrower 26.00 24.10 92.7 Internal Development Association (IDA) 101.30 90.10 88.9 TOTAL 127.30 114.20 89.71
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ANNEX 4. EFFICIENCY ANALYSIS
1. This section provides an economic and financial analysis of the Senegal Tertiary Education Governance and Financing for Results. It provides the efficiency of investment in higher education in Senegal based on key sector indicators and estimates economic internal rates of returns (IRR) of actual indicators observed at the end of the project implementation. First, this section provides an analysis of key sector issues and the returns to education. This analysis: (i) highlights key issues in the education sector, (ii) reestablishes the linkages between educational outcomes and the labor market, (iii) analyzes whether Senegal’s labor market provides a positive signal that investing in education yields important returns to both individuals and households, and (iv) presents the rationale for investing in education in terms of key outcomes on access, equity and private benefits of education. Second, this section replicates the cost-benefit analysis undertaken at the project appraisal stage and compares the IRR with actual results obtained at the project closing.
2. The first benefit associated with component 1 of the project was an increase in the quality of higher education in Senegal through strengthening the Government’s capacity to improve the management of the tertiary education system. The Directorate General of Higher Education which is in charge of overseeing the overall development of the higher education sector is fully operational and the National Quality Assurance Authority (ANAQ) is also well established and has adopted the quality standards and evaluation criteria for HEIs. Through component 2, it was envisaged that the project would improve the effectiveness of the higher education institutions by : (i) creating incentives for better effectiveness and efficiency of HEIs in public resources utilization through performance-based contracts (PBCs) between the Government and the universities to improve accountability and efficiency in resource management; (ii) diversifying the tertiary education system and increasing access to short-term tertiary education by creating a new Tertiary Education and Vocational Institute in Thies and establishing an information communication technology (ICT)-facilitated network; and (iii) rehabilitating and expanding Senegalese HEIs. This benefit was expected to be captured by an increase in higher education enrollment and in promotion rate at first year of university. The project targets in terms of overall enrollment were exceeded, with 194,963 students enrolled and the promotion rate at first year in the five universities significantly increased from 61 percent in 2010 to 71 percent in 2018.
Challenges in the education sector
3. Overall, key education indicators have remained largely stagnant in Senegal between 2010 and 2017, except for the Gender Parity Index (GPI) that has been achieved at primary and upper secondary levels of education and almost at the lower secondary level. Gross Enrollment Rates (GERs) decreased at lower secondary and tertiary levels of education and slightly increased at both primary and upper secondary levels. For instance, at the primary level, the GER slightly increased from 79 to 82 percent between 2010 and 2017 and decreased from 61 to 51 percent at lower secondary level—a 10-percentage point decrease. In terms of universal access, the sector has still not achieved its MDG objectives as the Primary Completion Rate (PCR) stands at only 64 percent. Figure 1 shows GER, PCR and GPI in 2010 and 2017. Performance in gender equity is a significant accomplishment. Senegal has exceeded its gender targets at the primary level. Indeed, gender parity was achieved at the primary level in 2010 and almost
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at the secondary level in 2017. For instance, Gender parity was 99 percent at lower secondary level and 100 percent at upper secondary level in 2017.
4. The large share of out-of-school children is a serious concern for Senegal’s human capital accumulation, inclusiveness and global competitiveness. As shown in Figure 2, about 43 percent of Senegalese children aged 6-11 were out-of-school in 2017, of which the majority had never been in school (41 percent). There has been no improvement in the rate of out-of-school between 2010 and 2017, and if this chronic issue is not adequately addressed, the low education profile of the labor force will persist and will negatively impact the positive trend of the current economic performance driven by skills global competition. Furthermore, the incidence of out-of-school disproportionately affects children from economically disadvantaged groups and rural areas where more than 50 percent of them are out-of- school (Figure 2).
Figure 1: Trends in Gross Enrollment Rate (GER) by level of education, Primary Completion Rate, Out-of-school Rate, and GPI in Senegal.
106% 2010 2017 99% 100%
102% 82% 86% 69% 79% 64% 51% 70% 67% 58% 61% 35%
32%
5% 6% Primary Lower Upper Tertiary Primary Primary Lower Upper Tertiary Secondary Secondary Secondary Secondary GER Completion GPI
Source: Authors’ estimations based on ESPS II-2010 and DHS 2017
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Figure 2: Out-of-school rate for children age 6-11 by socioeconomic status
Never attended Dropout 3.2 2.3
2.5 1.1 2.5 2.5
58.9 53.6 43.0 2.9 41.3 40.5 38.2 2.5 19.6 13.2
2010 2017 Male Female Urban Rural Q1 Q5 National Gender, 2017 Area, 2017 Wealth Quintile, 2017
Source: Authors’ estimations based on ESPS II-2010 and DHS 2017
5. One of the key challenges facing the higher education in Senegal is the challenge of inadequate capacity to accommodate all the students who pass the baccalaureate exam since the government commitment to provide all new secondary school graduates ‘bacheliers’ with a place in a public university. This policy has led to a rapid growth of expenditures for core functions of the universities. Figure 3 shows the evolution of bacheliers entering public universities between 2010 and 2018. It shows that the number of bacheliers increased from 30,575 in 2010 to 55,137 in 2018– more than an 80 percent increase.
6. The demand for higher education has been on a strong upward trend over the past two decades worldwide. This expansion is attributed to a greater demand for higher levels of education and skills that are required to compete for well-paying jobs in an increasingly globalized and knowledge-based economy. In line with this global trend, enrollment in higher education in Senegal has also trended strongly upward over the past decade. The upward trend coincides with the presence of several factors that facilitated this growth--increased public revenue, greater job creation in the public and private sectors, a policy of liberal access to public universities and generous student subsidies. Figure 4 shows the evolution of enrollment in public universities in Senegal. Between 2010 and 2018, total enrollment in public universities grew at a rate of 9 percent a year. Between 2010 and 2018, student numbers almost doubled – increasing from 66,373 to 131,775.
7. In addition of the policy to provide all new secondary school graduates ‘bacheliers’ with a place in a public university, the majority of students attending public universities received public scholarships or direct financial assistance from the state. Figure 5 shows the trend of scholarships expenditure between 2010 to 2018. It shows that the amount of scholarships has almost doubled during the period 2010 to 2018. The total amount increased from CFAF 39.3 billion to CFAF 65.9 billion. The government has been
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able to contain the level of scholarships for students studying abroad with the amount involved decreasing from CFAF 9.2 billion in 2010 to CFAF 5.1 billion in 2018.
Figure 3: Trends of number of ‘bacheliers’ 60,000 55,137 55,000
50,000
45,000
40,000
35,000 30,575 30,000
25,000
20,000 2010 2011 2012 2013 2014 2015 2016 2017 2018
Source: Authors’ estimations based on data from Office du Bac
Figure 4: Trends of enrollment in public universities
140,000 131,775 UCAD UGB Thies UADB UASZ UVS Total
120,000
100,000
80,000 66,373
60,000
40,000
20,000
- 2009-2010 2010-2011 2011-2012 2012-2013 2013-2014 2014-2015 2015-2016 2016-2017 2017-2018
Source: Authors’ estimations based on data from different universities
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Figure 5: Trends of scholarships expenditure in billion CFAF 65.9
53.9
43.1 44.7 43.4 41.2 42.2 39.3 32.5
2010 2011 2012 2013 2014 2015 2016 2017 2018
Internal External Total
Source: Authors’ estimations based on data from different universities
8. The working-age population in Senegal is characterized by low educational attainment. On average, more than half of the working age population (age 15-64) has no formal education –a concern for future economic growth and global competitiveness. The distribution of the working population by age group shows that although the educational attainment of the labor force is growing, about 55 percent of the working age population has no formal education as of 2010. Figure 6 shows that 41 percent of the youth cohort (age 15-24) has not received any formal education - a significantly lower proportion than the adult cohort (age 55-64) with no formal education which stands at 76 percent. When the distribution of the working age population is disaggregated by gender and geographic location, the following are observed: (i) there are relatively more women (61 percent) than men (47 percent) who have not received a formal education; (ii) rural areas, and especially regions of Kaffrine and Djourbel, have the highest proportion of the working age population with no education. For example, 83 and 82 percent of the population in Kaffrine and Djourbel regions, respectively, have not received any formal education. Rural areas have higher percentage of working age people (75 percent) with no education compared to urban areas (33 percent). This suggests that the labor market is likely composed of workers with low skills who have not completed primary education, and this increases the likelihood of working in the informal and weak productivity sector.
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Figure 6: Distribution of the Working Population by level of education in terms of age group, gender, area and region (%) 100 90 80 70 60 50 82 83 40 76 75 78 76 69 67 71 70 30 63 61 63 67 67 56 55 52 52 20 41 47 33 30 30 10 0 Male Rural Thiès Kolda Dakar Fatick Louga Urban Matam Female Kaolack Kaffrine Sedhiou Diourbel Age Age 15-24 Age 25-34 Age 35-44 Age 45-54 Age 55-64 Age 15-64 Kedougou Ziguinchor Saint-Louis Tambacounda Age group Gender Area Region
No education Some Primary Some lower secondary Some upper secondary TVET Some post secondary Source: Authors’ estimations based on ESPS II-2010
Returns to education
9. The type of employment the labor force is engaged in is associated with the level of educational attainment: workers with low levels of education tend to be involved in farming employment, whereas those with higher levels of education tend to work in wage employment, which represent stable and consistent forms of employment income (Figure 7 top). On average, only 14 percent of the working-age population with no formal education is engaged in wage employment as opposed to 90 percent of those with some post-secondary and tertiary education. More educated individuals tend to work in the services sector since it offers better economic benefits and formal employment (Figure 7 bottom). About 36 percent of the working age population with no education work in services sector whereas, 75 percent of the labor force working in the service sector has post-secondary education.
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Figure 7: Employment status and sector of employment by education attainment for working age population (age 15-64)
Some post secondary 90 7 3
TVET 90 7 3
Some upper secondary 65 22 12
Some lower secondary 45 28 27
Some Primary 37 40 23
No education 14 32 53
Wage Non-farm Non-wage Farming
Some post secondary 4 21 75
TVET 4 15 81
Some upper secondary 13 16 70
Some lower secondary 28 20 52
Some Primary 27 23 50
No education 55 9 36
Agriculture Industry Services
Source: Authors’ estimations based on ESPS II-2010
10. In terms of investment on education, Senegal’s labor market signals higher returns and better employment opportunities for higher level of skills. While education has direct and indirect economic and social impacts, this section only focuses on the economic effects. As such the efficiency of the education sector is measured in terms of the value that education offers though earnings and employment opportunities. For example, the average estimated earnings increases from CFA 47,835 (about US$82) for the working age population with no formal education to CFA 270,269 (about US$464) for those with some post-secondary education level which is more than four times of the income of an individual with no education (Figure 8).
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Figure 8: Monthly earning (CFA), by gender, sector, and education level 270,269
204,329
153,174
105,326 81,564 81,844 89,356 88,462 70,826 65,822 47,835 44,938 38,147 35,672 TVET Male Rural Urban Female Services Average Industry Agriculture No education No Some Primary Some Some post secondary post Some Some lower lower secondary Some Some upper secondary upper Some Education level Gender Area Sector Source: Authors’ estimations based on ESPS II-2010
11. Education is a positive and profitable investment in Senegal. At the national level, one additional year of schooling increases income by 14 percent. Figure 9 presents estimates from the Mincerian regression, by gender, and area of residence. Furthermore, it indicates better returns for women and high productive sectors. For the same level of educational attainment, women have a higher rate of return (15 percent) than men (13 percent). This suggests that there are less educated women than men in the labor force. The rate of returns on education in the service sector is higher than in the other sectors suggesting that productivity in the services sector is higher.
Figure 9: Rate of returns on additional years of schooling by gender and area
15% 14% 13% 12% 11% 10% 8% 6.6%
National Male Female Urban Rural Agriculture Industry Services Gender Area Sector
Source: Authors’ estimations based on ESPS II-2010
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12. Individuals with a higher level of education receive better economic returns and the rate of return on education is higher for higher levels of education, confirming that education is a key determinant of livelihoods. At the national level, the rate of return ranges from 62 percent for individuals with some primary education to 251 percent for individuals with higher education, relative to individuals with no education (Figure 10). Higher education is the level that leads to remarkably high returns for female (251 percent) while TVET leads to high returns for male (226 percent).
Figure 10: Rate of returns on education level by gender and sector
291%
251% 253% 234% 232%231% 226% 217% 203% 209% 207% 194% 175% 165% 149% 144% 139% 116% 102% 93% 92% 80% 66% 62% 58% 64% 42% 41% 44% 27%
National Male Female Agriculture Industry Services Gender Sector Some Primary Some lower secondary Some upper secondary TVET Some post secondary Source: Authors’ estimations based on ESPS II-2010
13. Education is not only associated with higher wage earnings, but it also increases the likelihood of wage employment and employment in sectors with higher returns and employment contracts, which offer greater stability (Figure 8). An additional year of education increases the probability of working in sectors with higher returns (industry and services) by around 23 percent (Figure 11 (b)). Additionally, the increase in the probability of finding wage employment ranges from 38 percent for individuals with some primary education to 202 percent for individuals with TVET education, as compared to individuals with no education (Figure 11 (a)).
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Figure 11: Probability of wage employment by education level compared to no formal education (a) (b) 202% 24% 23% 165%
91%
56% 38%
Some primary Some lower Some upper TVET Some post secondary secondary secondary Industry Services
Source: Authors’ estimations based on ESPS II-2010
Internal Efficiency
14. Despite the significant increase in the promotion rate at first year of university between 2010 (the baseline year) and 2018 (project completion), universities in Senegal have not achieved the target levels except for Thies University (Figure 12). Under the Senegal Tertiary Education Governance and Financing for Results project, several activities such as performance-based contracts and the establishment of an ICT-facilitated network were supported to improve the quality and effectiveness of tertiary education institutions. On average, promotion rate at first year in the five universities significantly increased from 61 percent in 2010 to 71 percent in 2018–a 10 percentage point increase. At Thies University, the promotion rate increased from 70 percent in 2010 to 89 percent in 2018, thus exceeding the project target by 9 percentage points.
15. In terms of enrollment in higher education institutions, the project targets were overachieved with 194,963 students enrolled (40 percent female) (Figure 13). By December 2018, the number of students enrolled in higher education institutions exceeded the target by 24,963. The project fell short of the target for the percentage of female enrolled in HEIs by 3 percentage points. While the project did not meet the targeted rate of 43 percent of female enrollment at HEIs, increasing this rate from 33 percent to 40 percent was an important improvement to achieve greater gender parity in higher education.
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
Figure 12: Promotion rate at grade one by university
Baseline 2010 ICR 2018 (a) 89 75 75 72 80 45 70 70 57
30
UCAD Dakar UGB Saint-Louis Bambey University Thies University Ziguinchor University
Target 2017 ICR 2018 (b) 90 89 80 80 80 60 75 75 72 45
UCAD Dakar UGB Saint-Louis Bambey University Thies University Ziguinchor University
Source: Authors’ estimations based on project ISR
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Figure 13: Trends of enrollment at HEIs
Target Enrollment in HEIs 194,963 170,000 154,643 170,000 143,135 162,635 130,784 133,577 115,523 80,000 70,000 72,000 75,000 76,000
2012 2013 2014 2015 2016 2017 2018
Source: Authors’ estimations based on project ISR
Cost-benefit Analysis
16. The cost-benefit analysis is used to estimate the benefit brought by project as well as the associated cost to assess the economic feasibility at project preparation stage and final actual interventions. The analysis is tailored based on component-specific intervention designing, beneficiaries targeting, and the benefit quantifying. The cost-benefit analysis only captures the economic benefit streams of the project beneficiaries realized in terms of lifetime earnings because of better learning, as well as the intermediate benefits of the interventions. Semi-tangible benefits are benefits that are mostly associated with the quality component of the project and they are estimated based on standard benefit findings from similar interventions in other countries. Overall, the cost benefit analysis uses two different approaches of benefit stream estimates – access and quality.
17. The first approach of the cost benefit analysis focuses on access interventions of the project. This section captures the benefits associated with the construction of a new Tertiary Education and Vocational Institute (Institut Supérieur d’Enseignement Professionel) in Thies and the rehabilitation and expansion of facilities of Senegalese higher education institutions. It is worthwhile to mention that some of the investments affect both the quality and quantity aspects of the beneficiaries’ outcomes and should not be assumed as double counting the benefits.
18. The second approach focuses on the impact of interventions on quality improvement. This examines both the direct and indirect impact of interventions. The impact of direct interventions looks at student learning improvement through the provision of networks and interconnections while the indirect channels of student learning improvement include, for instance, improving teaching and learning conditions, and improving governance of the tertiary education and capacity building program.
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19. The cost-benefit of access and quality are calculated separately, then combined to obtain the overall cost-benefit estimates which are weighted by the cost allocated to each category at project preparation stage and final actual interventions.
Assumptions for cost-benefit analysis
20. To derive the cost-benefit analysis, the model makes several assumptions about the project activities, the associated costs, and benefits. The following presents the model assumption, net present value (NPV), and internal rate of return (IRR) for the project.
21. Below are key assumptions used: Rates: A 15 percent discount rate is used, the inflation rate assumed for the project lifetime is 5 percent, the maintenance cost assumed for the lifetime of the construction is 7.5 percent. The 2017 official exchange rate is set at 582.1 CFA per US$; Earnings: A wage rate is estimated for different levels of education and age, using the 2010-11 ESPS II (Enquête de Suivi de la Pauvreté au Sénégal). The earning rate remains the same over the benefit time span; Employment: The probability of employment remains the same and it is estimated by level of education using the 2010-11 ESPS; Life Span of the project: The beneficiaries from access component of the project engage in the labor market for a period of 40 years and for 15 years for those benefiting from quality. The universities provide services for 40 years; Probability of implementation: the probability of project implementation used is 63 percent, which is an average of 40 interventions in Latin America.
22. Table 1 below presents the comparison of cost-benefit analysis results at project preparation stage and final actual interventions. Both internal rates of return and net present value of costs and benefits for all components (combined) shows that the project is economically viable at project preparation stage and at the end of the project implementation based on actual beneficiaries of the project. The lower bound of the present discounted value of benefits for the overall project is estimated to be US$127.6 million compared with US$215.9 million at project preparation stage. This significant decrease is potentially associated with the 30-months extension of the closing date of the project without any additional finance. This decrease in the project discounted value of benefits may also be due some delays in the delivery of ISEP and the rehabilitation and expansion of facilities of universities that significantly decreased the number of beneficiaries. For instance, at the end of the project, the total number of beneficiaries in ISEP was 1,462 students which is four times lower than the expected number of beneficiaries of 6,000 students at project preparation stage. As such the present discounted value of costs is estimated to be US$71.32 million including other unquantifiable portions compared US$83.5 million at project preparation stage. The corresponding net present value (NPV) of program benefits is US$21.4 million compared with US$68.4 million at project preparation stage. The internal rate of return (IRR) associated with this NPV is 20.2 percent which is slightly lower that the IRR (21.0 percent) at project preparation stage. The benefit-cost ratio is 1.6 compared with 1.9 at project preparation stage. Therefore, although some benefits are not fully quantifiable to measure the potential benefits, the NPV from the quantifiable benefits are larger than the NPV costs, and this strongly supports the efficiency of investments undertaken under the project.
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Table 1: Net Present Value (NPV) in millions of USD and Internal Rate of Return (IRR)
a, at project preparation stage Access Quality Total IRR 23.4% 20.5% 21.0% Discounted cost (present value of costs) $32.78 $50.70 $83.48 O/w project cost $24.96 $50.70 $75.66 Maintained/incremental costs $8.99 $.00 $8.99 Present value of incremental benefits $146.46 $69.5 $215.9 NPV $49.60 $18.8 $68.4 Benefit/cost ratio 4.5 1.4 1.9
b, Based on actual data at ICR stage Access Quality Total IRR 16.4% 21.4% 20.2% Discounted cost (present value of costs) $39.17 $32.15 $71.32 O/w project cost $29.83 $32.15 $61.98 Maintained/incremental costs $10.74 $.00 $10.74 Present value of incremental benefits $81.42 $46.2 $127.6 NPV $7.32 $14.0 $21.4 Benefit/cost ratio 2.1 1.4 1.6
23. Cost-effectiveness of ISEP construction, the rehabilitation and expansion of facilities of universities and the establishment of an ICT-facilitated network. The project played a substantial role in the institutional strengthening of two-year tertiary education programs through the ISEP in Thies. The project was substantially cost-effective for the construction of a new Tertiary Education and Vocational Institute (Institut Supérieur d’Enseignement Professionel) in Thies, the rehabilitation and expansion of facilities of Senegalese higher education institutions and in the establishment of an ICT-facilitated network. At appraisal, the total estimated cost for the construction of ISEP and the establishment of an ICT-facilitated network was forecasted to be US$17 million. The total estimated cost for the rehabilitation and expansion of facilities and purchase of equipment for the Universities of Thies, Bambey, Ziguinchor and Saint-Louis and the rehabilitation of facilities and purchase of equipment for UCAD was forecasted to be US$25 million. As presented in Table 2 below, by project closing a total of about US$14 million had been spent for the construction of ISEP, US$3.6 million had been spent in the establishment of an ICT- facilitated network, and a total of US$ 47.5 million had been spent for the rehabilitation and expansion of facilities and purchase of equipment for the universities. By project closing, a total cost US$65 million had been spent for those two subcomponents, which was considerably higher than the appraised estimates of US$42 million. Despite challenges in the conception of the tender process as well as the low capacity of the construction firm that caused some delays in the expected delivery, most of these activities were efficiently completed before the closure of the project. For instance, Universities were able to develop an ICT network that provides interconnectivity of all the five public universities. Servers were installed at
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each of the five universities and WiFi networks exist on all the five campuses. These investments were instrumental in enhancing the quality of the higher education system.
Table 2: Actual Expenditures for the Performance Based Contract, the construction of ISEP, the rehabilitation and expansion of facilities of universities
Activity Senegal IDA Total (in US)
Performance Based Contracts 4,375,100 39,851,901 44,227,002
ISEP Thies 970,898 13,047,827 14,018,725
Provision of networks and interconnections - 3,581,900 3,581,900 Civil Works and equipment for other universities 18,676,279 28,810,650 47,486,929
24. In addition to a level 2 restructuring of the project on March 2016 and a second on September 2017, few other factors challenged the overall implementation of the project. A first formal restructuring of the project was done to provide additional time to complete the rehabilitation and construction of the higher education institutions being support by the project. The second restructuration was approved to extend the closing date from December 30, 2017 to December 30, 2018 so as to complete the construction of the University of Ziguinchor and University of Thies, rehabilitation of the University of Dakar and the expansion of the Universities of Bambey and Saint Louis. The delays in the construction due primarily to delays the counterpart funding needed to complete the construction work. However, the project PDOs and outcome targets were not revised through a restructuring during the project period. In addition, the target for beneficiaries was increased from the original 80,000 to 170,000 to take into consideration the extended period of implementation. Efficiency was observed in the implementation of the project particularly in the use of resources with planned activities carried out on average with an overall execution rate of 98 percent. Though allocation of project budget was slightly restructured across sub-component through the project life to ensure all activities planned are completed within the total budget allocated. Budget execution rate for some sub-components did not reached 100 percent not because the activities planned were not achieved but because some activities were completed at a cost lower than budgeted.
25. With the NPV of the quantifiable benefits greater than the NPV costs, the project demonstrated strong efficiency in investments undertaken during implementation. Furthermore, substantial internal and external efficiency gains were observed over the life cycle of the project with majority of the PDO indicators successfully achieving and significantly improved if their targets were not achieved. However, few factors negatively impacted the overall implementation of the project. For instance, the provision of counterpart funding was a challenge due to the fact that the government’s commitments were greater than the resources available. The delays with counterpart funding did require two extensions of the closing date and not all rehabilitation and construction works had been completed at project closing. In fact, the original closing date was set at June 30, 2016, while the actual closing date was December 30, 2018. The delays had the greatest impact on the delivery of the rehabilitation and expansion of facilities of universities and led to some inefficiencies in terms of implementation.
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
ANNEX 5. BORROWER, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS
In a letter dated September 26, 2019, the government confirmed its agreement to the findings of the ICR and had no additional comments. The government provided their final completion report to the Bank which has been filed in WBDocs for information and reference.
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
ANNEX 6. SUPPORTING DOCUMENTS (IF ANY)
Public Expenditure Review (PER) (draft), 2010 Country Assistance Strategy, for the period 2007-2011, Report No. 3668 Fourth Poverty Reduction Support Credit (PRSC IV), World Bank, 2010, Report No. S2748-SN Fifth Poverty Reduction Support Credit (PRSC-V), World Bank, 2011, Report No. 60373-SN Project Appraisal Document for the Tertiary Education Governance and Financing for Results Project, 2011. Report No. 61389-SN Financing Agreement (Tertiary Education Governance and Financing for Results Project), June 10, 2011. Credit Number 4945-SN. Project Information Document (PID) Appraisal Stage. Report No: AB6469 Integrated Safeguard Datasheet Appraisal Stage. Report No: AC6196. Implementation Status and Results Reports (IISRs) Nos. 1 -13 Restructuring Paper on a Proposed Project Restructuring of Senegal Tertiary Education Governance and Financing for Results, May 26, 2016 Restructuring Paper on a Proposed Project Restructuring of Senegal Tertiary Education Governance and Financing for Results., March 2017 Systemic Country Diagnostic of Senegal, October 4, 2018 Aide-memoires for the Project’s Implementation Support and Supervision missions Ministère de l’Enseignement Supérieur, des Universités et des Centres Universitaires Régionaux et de la Recherche Scientifique. Cadre de Gestion Environnementale et Sociale. Rapport Final. Avril 2011. Mbaye Mbengue Faye. Ministère de l’Enseignement Supérieur, de la Recherche et de l’Innovation. Les Reformes, Etat des Lieux. Numéro 004 – Novembre 2018. Ministère de l’Enseignement Supérieur, de la Recherche et de l’Innovation. Mise en Œuvre des Reformes de l’Enseignement Supérieur – Etat des Lieux, Octobre 2018. Ministère de l’Enseignement Supérieur, de la Recherche et de l’Innovation. Direction Générale de l’Enseignement Supérieur. Direction du Financement des Etablissement d’Enseignement Supérieur. Evaluation de la Mise en Œuvre des Contrats de Performance. Rapport de Synthèse. Aboubakry Niane. Février 2019. Ministère de l’Enseignement Supérieur, de la Recherche. Etude-Diagnostic de l’Efficacité des centres des œuvres universitaires du Sénégal. Résume Exécutif, Performances Management Consulting. Juin 2014. Ministère de l’Enseignement Supérieur, de la Recherche et de l’Innovation. Rapport Annuel de
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The World Bank SENEGAL Tertiary Education Governance and Financing For Results (P123673)
Performance 2017. Mars 2018. Coordination de la Cellule des Etudes et de Planification (CEP-MESRI). Ministère de l’Enseignement Supérieur, de la Recherche – Concertation Nationale sur l’Avenir de l’Enseignement Supérieur au Sénégal, Rapport General 06-09 avril 2013. King Fahd Palace, Dakar. Ministère de l’Enseignement Supérieur, de la Recherche. Etude-diagnostic de l’efficacité des centres des œuvres universitaires du Sénégal. Rapport d’enquête sur les conditions de vie des étudiants. June 2014. Performances Management Consulting. Ministère de l’Enseignement Supérieur, de la Recherche Direction Générale de l’Enseignement Supérieur. Groupement CRES. Audit des Bourses du Sénégal. Rapport Final. Décembre 2013. Ministère de l’Enseignement Supérieur, de la Recherche Direction Générale de l’Enseignement Supérieur. Rapport d’achèvement
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