Documentof The World Bank

FOR OMCLAL USE ONLY Public Disclosure Authorized Report No. 13640

PROJECT COMPLETION REPORT

TOGO Public Disclosure Authorized

EDUCATIONAL IMPROVEMENT PROJECT (CREDIT 1568-TO)

OCTOBER 27, 1994 Public Disclosure Authorized

Population and Human Resources Division Occidental and Central Africa Department Africa Regional Office Public Disclosure Authorized

This document has a restricted distribution and may be used by recipients only in theperformance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. ACRONYMS AND ABBREVIATIONS

AfDB African Development Bank BEPC Lower Secondary School Certificate (Brevet d 'etudes du premier cycle) BREDA Regional Office for Education Development in Africa (Bureau regional pour le developpement de l'education en Afrique, Dakar, Senegal) CEAP Basic Teaching Certificate (Certificat elementaire d'aptitude pedagogique) CEG Lower Secondary School (College d'enseignement gMngral) CE Elementary cycle (Cours elementaire) - I or 2 CFAF African Financial Community franc CM Intermediate cycle (Cours moyen) - I or 2 CP Preparatory cycle (Cours preparatoire) - I or 2 DCEBS School Construction and Maintenance Directorate (Direction de la construction et de 1'entretien des bdtiments scolaires, DGPE/MENRS) DEPE Project Implementation Directorate (Direction de 1'execution des projets d'education, DGPE/MENRS) DGPE Directorate General of Education Planning (Direction generale de la planification de leducation, MENRS) DIFOP Directorate of Teacher Training and Curriculum Development (Direction de la formation permanente, de I'action et de la recherche pedagogique, MENRS) ENI Primary Teachers College (Ecole Normale d'lnstituteurs) EU European Union GDP Gross domestic product Gvt Government IA Auxiliary teacher (Instituteur adjoint) [AS Auxiliary teacher trainee (Instituteur adjoint stagiaire) ICB International Competitive Bidding IDA International Development Association IMF International Monetary Fund INFA National Agricultural Training Institute (Institut national deformation agricole, Togo) INSE National Institute of Education Sciences (Institut national des sciences de l'education, Togo) LIMUSCO Government textbook agency (Librairie des Mutuelles Scolaires) MENRS Ministry of Education and Scientific Research (Ministere de l'education et de ia recherche scientifique) NGO Non-Governmental Organization PA Pedagogic Advisor (Conseiller pedagogique) PGI E.U.'s General Import Program (Programme general d'importation de l'Union Europeenne) PCR Project Completion Report SAC Structural Adjustment Credit SAL Structural Adjustment Loan SAR Staff Appraisal Report SDR Special Drawing Right TO Togo UNDP United Nations Development Programme Unesco United Nations Educational, Scientific and Cultural Organization USAID United States Agency for International Development US$ United States dollar FOR OFICIAL USE ONLY THE WORLD BANK Washington, D.C. 20433 U.S.A. Officeof Director-General OperationsEvaluation

October 27, 1994

MEMORANDUM TO THE EXECUTIVEDIRECTORS AND THE PRESIDENT

SUBJECT: Project Completion Report on Togo Educational Improvement Project (Credit 1568-TO)

Attached is the Project Completion Report on Togo - Educational Improvement Project (Credit 1568-TO) prepared by the Africa Regional Office. No Part II was issued. The PCR gives a satisfactory account of the project experience.

The project sought to improve the quality of primary and secondary educa- tion through investments in teacher training, textbooks and specialized facilities and to improve education management through a strengthening of the Directorate General of Education Planning.

Despite implementation delays, cost overruns, and underutilization of facil- ities, the outcomes of the project are on balance rated as satisfactory. Institutional development impact has been modest, but in line with the scope of the related interven- tions. However, at completion time the project's achievements were threatened by budget constraints and a volatile socio-political situation. Therefore project sustainability remains uncertain.

No audit is planned.

Attachment

Thisdocument has a restricteddistribution and may be usedby recipientsonly in the performanceof their official duties.Its contents may not otherwise be disclosedwithout World Bank authorization.

FOR OFFICIAL USE ONLY

Project Completion Report TOGO Educational Improvement Project (Cr. 1568 TO) TABLE OF CONTENTS

PREFACE ...... i EVALUATION SUMMARY ...... ii

PART I. REVIEW OF THE PROJECT FROM THE BANK'S PERSPECTIVE ...... 1

1. Project Identity ...... 1 2. Background ...... 1 3. Project Objectives and Description ...... 2 4. Project Design and Organization ...... 4 5. Project Implementation ...... 4 6. Project Results ...... 5 7. Project Sustainability ...... 6 8. IDA Performance ...... 9 9. Borrower Performance ...... 10 10. Project Relationship ...... 10 11. Contracted Services ...... 10 12. Project Documentation and Data ...... 11

PART II. REVIEW OF THE PROJECT FROM THE BORROWER'S PERSPECTIVE .... 12

PART III. STATISTICAL INFORMATION ...... 13

1. Related IDA Credits ...... 13 2. Project Timetable ...... 14 3. Credit Disbursements ...... 15 4. Project Implementation ...... 16 5. Project Costs and Financing ...... 18 6. Project Results ...... 20 7. Status of Covenants ...... 25 8. Use of IDA Resources ...... 27

LIST OF ANNEXES

Annex 1 Education expenses in the rural areas of the regions . 29 Annex 2 Primary school reading and math textbooks.30 Annex 3 The LIMUSCO bookstores .31 Annex 4 Audit Reports.33

MAP IBRD 18680R

This documenthas a restricteddistribution and maybe usedby recipientson]y in the performanceof their official duties. Its contentsmay not otherwisebe disclosedwithout WorldBank authorization.

- i -

Proiect Completion Report

TOGO

Educational Improvement Project (Cr. 1568 TO)

PREFACE

This document constitutes the Project Completion Report (PCR) for the Second Education Project in Togo (Educational Improvement Project), for which Credit 1568 TO in the amount of SDR 12.8 million was approved on March 26, 1985. The credit was closed on June 30, 1992, one year later than scheduled. The last disbursement was made on November 23, 1992, at the end of the agreed "grace period", and the undisbursed balance of SDR 3,882.64 was cancelled from the credit, effective on that date.

The PCR was prepared by the Population & Human Resources Operations Division of the Occidental and Central Africa Department, with local support from the Bank Resident Mission in Lome.

During the final supervision mission of the project (February 1992), it had been agreed that the Borrower would start preparation of its Part II simultaneously with IDA's work on Parts I and III, and the completion mission had been scheduled for July 1992. Sociopolitical events in Togo, however, delayed this mission until September-October 1993. On September 24, 1993, IDA acknowledged the Government's final progress report and reminded the Borrower about the preparation of Part II, which was subsequently drafted, but could not be finalized owing to the country situation. Instead, the draft Parts I and III were discussed between the Borrower and an IDA education mission in November 1993. Resulting comments have been taken into account to finalize this PCR.

This PCR is based, inter alia, on the Staff Appraisal Report, the Development Credit Agreement, the Borrower's progress reports and IDA supervision reports, as well as correspondence and minutes of discussions between IDA and the Togolese Government.

- iii -

Project Completion Report

TOGO

Educational Improvement Project (Cr. 1568 TO)

EVALUATION SUMMARY

Objectives (Part 1.2 and 3): In line with the education sector policy and the macroadjustment program of the Government, the project objectives were as follows:

1. Improve the quality of education at both the primary and the secondary levels: (a) through an integrated training program for upgrading primary teachers and mathematics and science teachers; (b) by making low-cost textbooks available to primary students; and (c) by improving mathematics and science teaching facilities.

2. Improve the management of education through the reorganization and strengthening of the Directorate General of Education Planning (DGPE).

Design and Organization (Part 1.4)

3. The project was globally well designed in that it addressed the major deficiencies of the education system, based on a sectoral analysis and development objectives which were clearly understood and finally shared (the textbook component was not initially fully supported by all relevant parties in Togo, since its innovative fostering of local inputs was a drastic departure from established practices).

4. The roles and responsibilities of project actors were carefully organized, based on the First Education Project's experience, to improve coordination and reduce delays. Some conflicting attributions, however, could not be avoided and resulted in responsibility gaps or imbalances which were perceived but could not be corrected until the creation, at the end of the project, of a Sectoral Steering Committee, as proposed by IDA to prepare the follow-up operation (para. 7.2.d).

Implementation Experience (Part 1.5)

5. The project components were all implemented, with the following most critical variances between planned and actual implementation:

(a) Delays (Part 111.2to 4): Despite an almost punctual Credit Effectiveness, the Credit Closing was put back a year and physical completion delayed by up to two and a half years. This slippage was mainly caused by (i) delays and changes in management arrangements; (ii) lengthy implementation preparation, procurement procedures, and Borrower/IDA agreements; and (iii) the sociopolitical situation after 1990.

(b) Costs (Part III.5.A): Mainly affected by drastic exchange rate fluctuations, delays, and some scope variations, total project costs resulted in an overrun of 35% when converted to US$, and in savings of 14% and 1.5% respectively, when expressed in CFAF and SDR. Overruns in any currency - iv - concerned mainly civil works and training, and were covered by savings on other categories of expenditures.

Results (Part 1.5 and 6)

6. While most intermediary objectives have been met (some have even been exceeded), the sociopolitical developments at the end of the project interrupted the functioning of the education system and froze any significant impact:

(a) Education guality improvement: (i) More teachers than planned have been trained, yet pedagogical improvement in the classroom was evaluated as below expectations (para. 6.1 .a); (ii) low cost, locally adapted textbooks were distributed to the LIMUSCO stores throughout Togo, but the falling-off of household incomes and the dispersion of the rural population are hampering their availability in the classroom (para. 5.3.c); and (iii) math and science teaching facilities have been built or rehabilitated and equipped, but underutilized (para. 6.2).

(b) Education management: (i) Education planning has been reorganized and strengthened, and studies have been carried out; both are useful resources, in particular for preparing the following project; (ii) a preventive mairtenance system has been launched, and interrupted by upheavals; and (iii) project implementation capability has been reinforced by training staff and providing equipment, both still in place.

Sustainability (Part 1.7)

7. The sociopolitical situation and severe budgetary constraints have had a negative impact on project sustainability. As it addresses most of the same sectoral problems, the proposed Education Management Project being prepared by IDA (para. 7.3) should help resurrect, sustain and improve this project's outcome, while promoting necessary change in terms of institutional and budgetary priorities, decision making process and work methods (para. 7.2.d).

Findings and Lessons Learned (Part I.8 and 9)

8. Findings mainly confirm lessons learned before:

(a) Project design should (i) pay more attention to risk and component analysis, implementability (capacity constraints, realistic timing and flexibility), management arrangements, and Borrower's ownership; and (ii) provide for early finalization of implementation preliminaries and procedures, if necessary through up-front conditionality.

(b) IDA supervision should be improved through (i) appropriate resource allocation and flexibility; and (ii) ad hoc delegation to Resident Missions. Proiect Completion Report

TOGO

Educational Improvement Proiect (Cr. 1568 TO)

PART I. REVIEW OF THE PROJECT FROM THE BANK'S PERSPECTIVE

Proiect Identity

Project Name: Educational Improvement Project Credit No.: 1568 TO RVP Unit: Africa Country: Togo Sector: Education

2. Background

2.1 Sector development objectives

In its 1975 Education Reform, the Government had defined its strategy for developing education, emphasizing, inter alia, the need to: (i) create an equitable education system offering adults training opportunities and universal lower secondary education; (ii) improve the quality of education through teacher training and upgrading, and through adoption of improved curricula, especially in mathematics and science; (iii) improve the match between outputs of the education system and the country's manpower requirements; and (iv) strengthen educational planning. At the time of project appraisal, significant progress had been made towards these four objectives, notwithstanding Togo's economic and financial constraints.

2.2 Policy context

(a) In 1983 and 1984, Togo's economic and financial situation and prospects were precarious. The real GDP fell by 8% in 1983 and increased by less than 2% in 1984; growth prospects over the medium term remained modest while external debt service increased. The overall balance of payments was maintained by accelerated SAC I disbursements and Paris Club debt reschedulings, but was projected to deteriorate. The need for project and non-project financing remained high.

(b) Faced with a worsening economic and financial situation, the Government recognized the need for a more comprehensive recovery policy. In 1983 and 1984, it adopted additional more stringent financial stabilization programs in conjunction with an IMF stand-by arrangement and a first structural adjustment program supported by a US$40 million IDA credit (May 1983).

(c) As a result of the Government's austerity program, the education budget started declining in real terms in 1983. In 1982-83, 25% of the total expenditures for education were financed through external assistance, of which France provided 34%, IDA 24%, AfDB 16% and USAID 9%. The first IDA-financed education project (1980-88), for US$11.0 million, assisted the Government in improving the quality of primary education, relieving shortages of trained agricultural manpower, and strengthening project management. 2.3 Linkages between project, sector and macro policy obiectives

By aiming at improving the quality and management of education and reducing education costs, the project fully supported the Government's sector objectives and macroadjustment program:

(a) In the short-term, the professional skills of all primary teachers would be upgraded, and facilities would be improved to provide a better learning environment.

(b) In the long-term, through institutional development and policy dialogue, the project would provide the sector with the capacity to carry out integrated sectoral planning, optimize the use of physical and teaching resources, establish a system of school maintenance by local communities, and plan and implement investment programs.

(c) To address the Government's financial constraints, the project was designed to minimize recurrent costs and to ensure the gradual entry of substitute teachers into the Government's budgetary allocations by phasing the Government's contribution to incremental recurrent costs in annual increments of 20%.

3. Proiect Objectives and Description

3.1 Objectives. The project's objectives were to:

(a) improve the quality of education at both the primary and the secondary levels: (i) through an integrated training program for upgrading primary teachers and mathematics and science teachers; (ii) by making low-cost textbooks available to primary students; and (iii) by improving mathematics and science teaching facilities; and

(b) improve the management of education through the reorganization and strengthening of the Directorate General of Education Planning (DGPE).

3.2 Proiect components.

COMPONENT 1: PRIMARY LEVEL

Subcomponent 1.A: Training

(a) Upgrading of the knowledge and teaching skills of about 5,850 primary teachers through: (i) a one-year correspondence course; (ii) three one-week seminars organized at the inspectorate level and conducted by inspectors and pedagogic advisers; and (iii) a three-month upgrading course at a Primary Teachers College (ENI).

(b) Training of 60 inspectors and pedagogic advisers to provide on-the-job support to teachers.

Subcomponent 1.B: Textbooks

Production and distribution of reading and mathematics textbooks costing 50% less than those on sale in the LIMUSCO bookstores at the start of the project. COMPONENT 2: LOWER SECONDARY LEVEL

Subcomponent 2.A: Training

Upgrading of about 1,250 math and science teachers and 21 math and science inspectors through annual 10-day seminars.

Subcomponent 2.B: Science facilities and teaching aids

(a) At the Directorate of Teacher Training and Curriculum Development (DIFOP): (i) construction of a workshop for producing prototypes of simple low-cost science equipment; (ii) expansion of the training laboratory; and (iii) preparation and production of teachers' manuals.

(b) In the Lower Secondary Schools (CEGs): (i) conversion of 10 laboratories and construction of 11 new ones to be used for training purposes; (ii) conversion of 262 classrooms in 234 CEGs into science rooms; and (iii) provision of furniture and basic instructional materials.

COMPONENT 3: IMPROVEMENT OF EDUCATION MANAGEMENT

(a) Reorganization of the Directorate General of Education Planning (DGPE) into three directorates: Education Planning, Construction and Maintenance, and Project Implementation.

(b) Support to the Education Planning Directorate and accomplishment of four tasks: (i) study of the financing of education; (ii) improvement of the system's cost-efficiency ratio; (iii) evaluation of the upgrading programs; and (iv) production of a school map for the country.

COMPONENT 4: REHABILITATION AND MAINTENANCE OF SCHOOL FACILITIES

(a) Support to the School Construction and Maintenance Directorate (DCEBS) to inventory classrooms to be rehabilitated and then to organize and supervise the works.

(b) Training of 8 national supervisors and 50 inspectors in preventive maintenance and preparation of a maintenance manual.

(c) Rehabilitation and preventive maintenance of 1,430 classrooms with local authorities and parents' associations meeting 50% of the cost (CFAF 1,000/year/enrolled student); and maintenance of the Kara and Nots6 ENIs and of the Tove National Agricultural Training Institute (INFA).

COMPONENT 5: STRENGTHENING OF PROJECT IMPLEMENTATION CAPABILITY

Support to the Project Implementation Directorate (DEPE) for implementation monitoring, financial management and project preparation. 4. Project Design and Organization

4.1 The project was globally well designed in that it addressed the major deficiencies of the education system, based on a sectoral analysis and development objectives which were clearly understood and finally shared by the Borrower and IDA (the textbook component was not initially fully supported by all relevant parties in Togo, since its innovative fostering of local inputs was a drastic departure from established practices). Thanks to the dialogue and knowledge established under the first operation, the project was thoroughly prepared (inter alia with very clear and detailed Working Papers), almost according to the planned schedule (Part 111.2). The timing was initially correct, as shown by the comparative credit disbursement schedule (Part III.3), but the country situation and the first project's ongoing experience should have led to more prudent contingency planning. Also, the textbook distribution strategy was designed for the LIMUSCO stores, instead of down to the classroom level.

4.2 The roles and responsibilities of project actors were carefully organized, based on the First Education Project's experience, to improve coordination and reduce implementation delays, in particular through a better integration into MENRS' existing structure and claimed concern for pedagogical aspects: MENRS Directors were made responsible for the implementation of their respective components, through coordinators appointed by them to work in close collaboration with DEPE on tasks precisely listed in the project's Working Papers. Some conflicting attributions, however, could not be avoided, like the responsibility of supervising pedagogical aspects given to DEPE (a responsibility that relevant, better staffed Directorates could obviously not abandon). Compounded with DGPE's exclusive control of Credit funds' commitments, this and other "grey areas" resulted in responsibility gaps or imbalances which were perceived but could not be fully corrected until the creation, at the end of the project, of MENRS' Steering Committee, as proposed by IDA to prepare the follow-up operation (para. 7.2.d).

5. Proiect Implementation

5.1 The project components were all implemented, with the following most critical variances between planned and actual implementation:

(a) Delays (Part III.2 to 4): Despite an almost punctual Credit Effectiveness, the Credit Closing was put back a year and physical completion delayed by up to two and half years. The slippage in execution of the components--except for primary teacher training, which was a continuation of the first project--was due to several cumulative factors, including: (i) delays in setting up DEPE; (ii) sometimes, long negotiations between the Government and IDA before agreeing on certain implementation arrangements (e.g. to deal with the budget overrun resulting from the slippage of rehabilitation works); (iii) frequent changes in project management; (iv) lengthy national procurement and payment procedures; (v) changes of construction sites; (vi) for the textbook component, limited Government commnitmentinitially, lengthy copyright negotiations with foreign publishers, and change of strategy concerning production and distribution infrastructure; and (vii) finally, the sociopolitical situation after 1990.

(b) Costs (Part III.5.A): Mainly affected by drastic exchange rate fluctuations, delays, and some scope variations, total project costs resulted in an overrun of 35% when converted to US$, and in savings of 14% and 1.5% respectively, when expressed in CFAF and SDR. Overruns in any currency concerned mainly civil works and training, and were covered by savings on other categories of expenditures (explanations in Part III.5.A).

(c) Withdrawal of Credit Proceeds (Part III.5.C): An interim and a final reallocation of funds between credit categories were necessary to substantially increase civil works and training and more modestly increase substitute teachers' fees. An undisbursed balance of SDR 3,882.64 was cancelled from the SDR 12.8 million Credit at the end of the project.

5.2 Some of these variances could have been minimized by a still deeper, but probably longer project preparation, with more Government participation and ownership (textbook component); by more and better focused supervision; by a more careful and stable staffing; and by the progressive streamlining of procurement and payment procedures.

5.3 The three major risks were correctly identified, yet none could be entirely prevented:

(a) The Government's financial constraints were more severe than anticipated and, for instance, left the ENIs without any operating budget.

(b) The Government's ability to implement the project in a timely manner was hampered as explained above (5.1.a)

(c) Textbook availability is not satisfactory because: (i) distribution was not organized down to the classroom level; and (ii) the price system was not progressively adjusted to declining family resources available for education: although they meet the planned criteria, the present distribution system and price scale are better suited for urban than for rural areas (75% of the population), for which the following should be taken into consideration: (i) the wide dispersal of dwellings; and (ii) the low cash incomes of rural households-CFAF 270/month/household in rural areas, compared with CFAF 509/month/household in secondary urban centers (Annexes 1, 2 and 3).

5.4 The worsening of the economic and financial situation could have been foreseen (para. 2.2), and/or progressively taken into account. It would, however, have been less easy to anticipate the extent of the sociopolitical deterioration which, at the end of the project, prevented the already delayed school maintenance program from being completed, and generally, quite adversely affected project results and sustainability.

6. Proiect Results

While education quality at the primary/secondary levels and education management had reportedly improved before the sociopolitical events brought the education system to a halt, most intermediary objectives have been better met quantitatively (in this respect, some objectives have even been exceeded) than qualitatively (Part III.6):

6.1 Primary level:

(a) More teachers and inspectors/pedagogical advisors than expected have been trained by the planned methods; however, pedagogical improvements in the classrooms, albeit obvious, seemed below expectations, as per the consultants' evaluation, hampered i.a. by insufficient followup pedagogical support and motivation, given the country situation. All qualified substitute teachers - 6 - contracted under the project have been employed on a full time basis as of September 1991, in compliance with the Credit Agreement; however, no operating budget has been provided yet for the two Primary Teachers Colleges (ENIs, developed under the previous project), which only survived out of part of the training per diems.

(b) DIFOP and LIMUSCO (respectively Government's Pedagogical Directorate and Textbook Agency) have conceived or adapted, purchased through ICB from foreign publishers (owing to insufficient local publishing and printing capacity), and distributed throughout Togo low-cost textbooks in line with planned contents, quantities and price scale, taking inflation into account (Annex 2). As planned, a revolving fund has helped establish post-project self-financing by LIMUSCO. Despite the extensive network of LIMUSCO stores (Annex 3), availability of books in the classrooms is well below expectations (para. 5.3.c).

6.2 Lower secondary level: More mathematics and science teachers than planned have been trained, but the simple demonstration equipment was not built by all of them (mostly for lack of means and motivation). Textbooks and teacher guides have been supplied, and science facilities have been improved or converted and equipped. However, both the consultants' evaluation and its subsequent study by MENRS, during a seminar, identified shortcomings from the planned outcomes, like still-insufficient demonstration, practice and linking of the material taught to students' daily lives; moreover, the slow pace of training school administrators in class rotation organization has further reduced the priority use of labs for all science classes.

6.3 Education management: Educational planning has been strengthened, as planned, through reorganization, transfer of supplementary staff, provision of expanded facilities, equipment, training and specialist services; although the studies (education financing, teacher training evaluation, and school mapping) have been carried out too late to have an impact on project components, they are nevertheless a basis for the preparation of the subsequent IDA operations (para. 7.3 and Part III.6.B).

6.4 School rehabilitation and maintenance: all existing CEGs have been rehabilitated, and preventive maintenance consciousness has been notably improved at the local level through seminars, information campaigns, and demonstration; communities have contributed 50% of school corrective maintenance, as planned, but, owing to a late start and the country's situation, for only about 800 of 1,430 targeted classrooms; also, appropriate maintenance of the ENIs has been hampered by lack of an operating budget. Finally, as a result of the complete closing of schools during the sociopolitical events, facilities have again or further deteriorated, and this effort has to be resumed (para. 7.3).

6.5 Proiect implementation capability has been reinforced mainly through substantial training and experience building, including in computer use, as well as by the creation, through short-term technical assistance, of a simple computerized accounting and financial management system.

7. Proiect Sustainability

7.1 The sociopolitical situation of recent years, coupled with the severe budgetary constraints, has had a negative impact on the sustainability of the project. As it addresses most of the same sectoral problems, the proposed Education Management Project being prepared by IDA (para. 7.3) should help resurrect, sustain and improve this project's outcome, while promoting necessary change in terms of institutional priorities, decision making process and work methods. -7-

7.2 Risk Factors

(a) Teacher Training

(i) No provisionwas made for continuingthe training of monitors, auxiliary teachers and trainee auxiliary teachers (replacementof inspectorswho retire, organization, operatingresources), although in-servicetraining remains a necessity.

(ii) Becauseof lack of maintenance,the Kara and Notse ENIs are not presently in a fit state to receive trainees and should be rehabilitatedbefore training can resume.

(iii) The upgrading of science teachersshould continue; however, the teacher-trainer who ran the DIFOP workshopand laboratory is retiring and no replacementhas been appointed, and there are no funds for purchasing consumabletraining materials.

(b) Textbooks: The present distributionstrategy does not fit the situation. Sustainabilityof production and distributionis also dependenton managementefficiency, which is being audited by the Government(final results are expected later this year).

(c) School rehabilitationand maintenance:

(i) The preventivemaintenance system that DCEBS has begun to set up will be operational only if the Directorate is sufficientlystrengthened and/or assisted (e.g. by NGOs) to go into the field and sensitizeinspectors, principals, teachers and parents; complete the training of the regionalsupervisors; and test, improve and promote the maintenancemanual, so that school principals be better informed and encouragedto mobilize local support.

(ii) The funding availableto DCEBS is insufficientto cover preventive maintenance (CFAF 7.7 million in 1989/90, CFAF 46 million in 1990/91and CFAF 20 million in 1991/92, with 50% being financedby local authorities).

(d) Educationmanagement and project implementation: A positive developmentin the evolution of managementcapacity within MENRS (paras. 4.2 and 5.3) has already occurred with the establishment of a Sectoral Steering Committeemade up of key directors within the educationministry and chaired by the Minister. It was establishedat IDA's suggestionto take responsibilityfor the proposed project's preparation and its eventual implementation,but has emerged as the principal decision- making body within the Ministry, with broad responsibilityfor policy decisionsand implementation. The Steering Committee, which meets on a weekly basis, is the primary vehicle for ensuring that informationand policy optionsproduced during project implementationare effectivelychannelled into the policy formulationprocess. In this context, it is also responsiblefor ensuring wide participation in the preparation and implementationprocess--both within and outside the EducationMinistry--and for consensusbuilding on the project's objectivesand operationalstrategies. Continuationof this major institutionaldevelopment is a key factor for improvingeducational management, project implementationand sectoral budgeting provisions(Steering Committee'smeetings may include participationof representativesfrom the Finance, Planningand other Ministries, on an ad-hoc basis). 7.3 Proposed Educational Management Project

(a) Government educational strategy : Partly on the basis of studies financed under the Second Education Project (Part III.6.13), MENRS has established its priorities for the reform process in a Governmental Statement of Sectoral Policy. These place the emphasis on basic education (Grades 1 to 10), with a focus on efforts to improve school quality and girls' participation. The proposed Educational Management Project is designed as an expression of this policy statement.

(b) Project objectives : The project addresses two closely related themes: development of better schools and development of better management systems. It supports the MENRS in its efforts to improve its capacity to: (i) effect quality improvements in instruction and school management at the primary school level; (ii) facilitate the decision making process by establishing and periodically updating a customized information system; (iii) prepare and defend operating and investment budgets; and (iv) consolidate gains from an ongoing ministerial restructuring, particularly in terms of decentralizing the responsibility for instructional management and creating improved information flow procedures and work practices.

(c) Main project components addressing previously identified risk factors

(i) Teacher training: A key purpose of the proposed project's in-service training component is to help the primary schools move toward establishing the school directors as instructional leaders, a role initially assigned to inspectors and pedagogic advisors but increasingly disappearing from the current system. The project would also provide in-service training to secondary teachers in the use of a new science curriculum. Resources for teacher supervision and training would be assured by the Government budget. Satellite school arrangements and others for school principals would be tested through a pilot school network. The project would also help the Government monitor expenditures within the framework of the education budget for routine teacher training and supervision.

(ii) Textbooks : A program for provision of primary school textbooks has been developed by the European Union, with additional reading books already provided by the Japanese government. Purchase and distribution of these books has been delayed by the suspension of European Union aid to Togo, but is expected to occur in the near future (Part III.6.Note 7). Consequently, the proposed project will focus on textbooks for the lower secondary cycle. This will include purchase and distribution of textbooks, as well as a training program for teachers in the use of the textbooks.

(iii) School rehabilitation and maintenance : Many urban and rural schools suffer from a long-term lack of maintenance, combined with recent vandalism during the civil unrest. This component would give responsibility for overseeing a three-year program of maintenance to a non- governmental organization (NGO) with regional experience in managing a broadscale program of school rehabilitation and reconstruction. A contract will also be awarded to an NGO to provide appropriate training to communities and school personnel in subsequent maintenance procedures, and to oversee the maintenance program through an initial period to be determined.

(iv) Education management and project implementation : A framework for sustainable improvements in both quality and access would be established through: - 9 - a. Community-basedteacher financing: Under a series of agreementswith the IMF since 1984, the Governmenthas frozen recruitmentof civil servants. In the educationsector, this has given rise to a number of makeshiftarrangements in order to replace retired or deceased teachers. Each of these arrangements, in turn, has proven unsustainableunder the present fiscal crisis. This project seeks to build on the most positive features of this ad hoc system in order to develop a decentralized (regional-based)approach for hiring contract teachers, with costs shared by parents' committees.

b. Improvedmanagement system: The project would mainly strengthen MENRS capacity to generate and analyze data regarding personnel, facilitiesand equipment, including maintenanceand rehabilitationneeds; budgetaryprogramming and monitoring,to participate constructivelyin the budget arbitrationprocess; and consolidationof the ministerialrestructuring currently being prepared by MENRS with the aim of developinga global view of the resources at its disposal and managingthese resources in a manner consistent with nationaldevelopment priorities.

8. IDA Performance

8.1 Major strengths and weaknesses : Project design was globallycorrect, carefully prepared and almost on schedule. IDA succeededin convincingthe Governmentto include the textbook component in the project, but promoted book distributionto the LIMUSCOstores only. While carefully heeding lessons from the first project and correctly identifyingmajor risks, IDA designedpreventive measures and managementarrangements which were not entirely successful.Resolving implementation problems was sometimesmade lengthy by the inappropriateduration and staffing of some supervision missions (Part 11I.8),as well as, globally, inadequatesupervision resources (9 staff weeks only per year, on average, and with a high staff turnover). Taking into account the Borrower's financial constraints, IDA did not object to the ENIs' operatingout of the training per diems only, while insisting on the provision of a budget. Towards the end of the project, IDA encouragedthe Governmentto evaluate project achievementsand to improve them as necessary and possible, but this was late and interruptedby the sociopoliticalevents. To better tackle sectoral issues, IDA finally promoted the creation of MENRS' Steering Coommittee,and is now preparing with the Governmenta new operation addressingsector resumptionand developmentaspects.

8.2 Lessons are the confirmationof now well-knownrecommendations:

(a) Project design should pay more attention to (i) the analysis of risks and of all components (e.g. textbooks in this project); (ii) implementability,in particular flexibilityduring implementation; and (iii) project managementarrangements, to clearly define the roles and responsibilitiesfor the institutionsand agenciesresponsible for the project, and to make sure that these arrangementsare well understoodand accepted.

(b) IDA supervisionshould be allocatedappropriate resources, in terms of (i) staff time, mix and continuity;(ii) mission frequency and flexibility;and (iii) inclusionof a mid-term review and of ad hoc delegation to Resident Missions. - 10 - 9. Borrower Performance

9.1 Maior strengthsand weaknesses

(a) The Borrower cooperatedfully in the preparation of the project and in effectingthe transition of activities already started in the first project. Despite an almost punctualCredit Effectiveness, project start-up and implementationhave been delayed by slow managementsetting-up and procurementprocedures; by an initiallylimited commitment to the textbook component;by changes in management,strategies and sites; by unclear responsibilitydistribution; and by difficultiesin securing appropriate staffing. The Borrower met its financial obligationsby making the counterpart funds available, and by recruiting the qualifiedsubstitute teachers. Rehabilitationworks were executed with economy and efficiency (the cost overrun resulted from start-up and other delays). The savings on ICB-procuredscience equipmentand on locally recruited specialistswere wisely used to rehabilitate all existing CEGs, print more books and train more teachers. The maintenancecomponent, however, had a very slow start-up, and its burgeoningimpact was swept away by the sociopoliticalupheavals. Finally, the Borrower failed to allocatethe resourcesneeded to efficientlypursue the activitiesonce the project was completed: (i) teacher training, includingrehabilitation and maintenanceof the ENIs; (ii) textbook subsidizingto make them affordable;and (iii) preventivemaintenance continuation.

9.2 Lessons, again, are not new:

Proiect design should:

(a) take into account the Borrower's capacity constraints, and use realistic timing with regards to progress in project implementation;

(b) develop a completesense of ownershipof the project design by the Borrower, through consensusbuilding by participatoryprocesses;

(c) identify management,procurement and fiscal issues, and devise up-front conditionalityto have them resolved by Negotiations,Board Presentationor Effectiveness;and

(d) advance activity preliminarieslike terms of reference, standard procurementdocuments and other procedures(implementation manual) as much as possible.

10. Project Relationship

The relationsbetween IDA and the Borrower were cooperativeand globallypositive, although sometimescomplicated by misunderstandings,mostly as a consequenceof IDA's inadequate allocation of resources to supervision.The situation has significantlyimproved since IDA's Resident Mission in Lome establisheda closer relationshipwith MENRS.

11. ContractedServices

There were no major problems with contractors,suppliers and consultants' services. In just a few cases, guaranteeshad to be enforced to correct deficienciesin rehabilitationworks or delivered goods. Relevant studies are instrumentalin the preparationof the follow-upproject. - 11 -

12. Project Documentation and Data

12.1 Overall, the legal agreements (Part III.7) were appropriate and complied with, although sometimes with delays: forwarding of audit reports to IDA for instance (Annex 4), and DGPE staffing which should have been secured by up-front conditionality (para. 3.01 d).

12.2 The Appraisal Report formed a valuable reference document despite the difficulty in reading some of its annexed tables. The project Working Papers were thoroughly prepared and clearly structured, however:

(a) the teacher training programs should have been established in coordination with the school curricula;

(b) methodological guidance should have been provided for the introduction of the science rooms and laboratories (which were new features), in order to facilitate this new approach; and

(c) the objectives and locations of courses and study trips abroad should have been specified.

12.3 The data needed for preparing the PCR were sometimes difficult to obtain; the agreements reached during the final supervision mission for assembling a complete body of data were not fully implemented, owing to the sociopolitical events which recurrently disrupted administrative activity soon after. - 12 -

PART II. REVIEW OF THE PROJECT FROM THE BORROWER'S PERSPECTIVE

During the final supervision mission of the project (February 1992), it had been agreed that the Borrower would start preparation of its Part II simultaneously with IDA's work on Parts I and III, and the completion mission had been scheduled for July 1992. Sociopolitical events in Togo, however, delayed this mission until September-October 1993. On September 24, 1993, IDA acknowledged the Government's final progress report and reminded the Borrower about the preparation of Part II, which was subsequently drafted, but could not be finalized owing to the country situation. Instead, the draft Parts I and III were discussed between the Borrower and an IDA education mission in November 1993. Resulting comments have been taken into account to finalize this PCR. - 13 -

PART III. STATISTICAL INFORMATION

1. Related IDA Credits

Title and Year of Purpose Status and Comments A"proval 1. Credit 1018 TO - improve the quality of primary - credit closed January 25 1988 (2% years First Education Proiect education; behind schedule). Project implementation 1980. - train skilled manpower to further was deemed satisfactory despite partial agricultural sector development; achievement of some objectives and - institution building in project completion delays (which resulted mainly management and preparation. from supplementary activities financed by exchange rate related savings); - the 2 ENIs built for pre-service teacher training accommodated the 3-month refresher-training seminars for primary school staff under Project 1568 TO.

2. Credit 2174 TO - make technical education and - effective January 24, 1991; Technical Education and vocational training responsive to the - after a one-year interruption caused by Vocational Training needs of the productive sector; the sociopolitical events, activities are Proiect 1990 - support institutional development. resuming and are being readjusted as necessary.

3. Credit 2211 TO - sector consolidation and - effective March 31, 1992; (same status Health and Population strengthening of its intemal and as above). Sector Adjustment extemal efficiency. Credit 1991 - provision of basic preventive and curative health services. 4. Education - improve MENRS' capacity to - preparation has been delayed by the Management Proiect develop and apply operational country's situation; strategies. - Board Presentation planned in late FY94.

5. SAL IV 1990 - increase basic education and - effective December 28, 1990; (Human Resource materials expenditures; - appropriate measures had been taken Development related - develop overall education strategy before the sociopolitical events interrupted measures) focusing on needs, financing and IDA's supervision; budgetary distribution; - the situation is being reassessed with a - rationalize health care delivery view to readjusting as necessary. system emphasizing decentralized provision of primary health care services; - increase awareness of population issues; - increase health budget in particular for non-personnel expenditures. - 14 -

2. Project Timetable

Date Planned Date Date Actual Revised

- Identification ...... 1/83 (1) 9-10/82 - Preparation ...... 3/83 (1) 4-5/83 - Pre-Appraisal ...... 9/83 (1) 10/83 - Appraisal ...... 1/84 (1) 3/84 (2) 3/84 - Credit Negotiations ...... 9/84 (1) 12/84 (3) 2/85 (4) - Board Approval ...... 11/84 (1) 3/12/85 (5) 3/26/85 - Credit Signature 4/29/85 - Credit Effectiveness ...... 8/85 (6) 9/30/85 (8) 9/18/85 - Project Completion ...... 6/30/90 (7) 12/31/91 (9) 11/92 (10) - Credit Closing ...... 6/30/91 (7) 6/30/92 (9) 6/30/92 - Final Disbursement ...... 11/23/92 (11)

Comments

(1) Source: Initial Project Brief (November 30, 1982) (2) Source: Project Brief Update (February 14, 1984) (3) Source: Decision Memorandum (May 11, 1984) (4) Negotiations were delayed by finalization of Loan Committee Package (5) Source: Decision Memorandum Transmittal Sheet (May 11, 1984) (6) Source: President's Report (March 4, 1985) (7) Source: Development Credit Agreement (April 29, 1985) (8) Source: September 3, 1985 Amendment (Telex from IDA to Gvt) (9) Source: June 27, 1991 Amendment (Fax from IDA in response to Gvt's June 3, 1991 letter flagging that implementation of certain project activities will not be completed until December 31, 1991: mainly teacher training, textbook procurement and evaluation studies) (10) Completion of training, textbook purchase and studies (committed by the Closing Date) was further delayed by the sociopolitical situation (Part 111.4) (11) Disbursement "grace period" granted by IDA (June 24, 1992 fax from IDA, in response to Government's June 22, 1992 letter submitting detailed schedule of delayed final payments). - 15 -

3. Credit Disbursements

Cumulative Estimated and Actual Disbursements (SDR million) Calendar Year 198 198 1987 12 1989 1990 1991 1992 Appraisal Estimate (1) 0.5 1.1 2.4 4.5 8.1 11.8 12.8 Actual 0.0 0.7 2.0 5.2 7.4 10.2 12.1 12.8 Actual as % of Estimate 0 64 83 116 91 86 95 100 Date of Final Disbursement: 11/23/92 Amount cancelled from the SDR 12.8m Credit: SDR 3,882.64

(1) SAR Annex 3-8 (for comparison purposes, the US$12.4 m total credit amount in this annex has been converted into SDR 12.8m, and the US$ yearly cumulative disbursement amounts have been proportionally converted into SDRs).

Time line showing estimated and actual disbursement schedules:

14 12 - x c810

2

°0III E1 ------I I I 1984 1985 1986 1987 1988 1989 1990 1991 1992 CalendarYears

x - Appraisal Estimate ---- Actual - 16 -

4. Proiect Implementation

Indicators Appraisal Actual Estimate 1. PRIMARY LEVEL L.A Training - furniture/equipment 07/1985-06/1990 05/1987-01/1991 - in-service training of 5,850 teachers 10/1985-06/1990 10/1985-02/1992 - in-service training of 60 inspectors and pedagogic advisers 07/1985-07/1989 06/1987-03/1991 1.13 Textbooks - civil works, furniture, equipment 01/1986-12/1988 09/1989-10/1990 - provision of textbooks 04/1986-09/1986 06/1989-11/1992 2. LOWER SECONDARY LEVEL 2.A Upgrading of 1,250 math and science teachers and 21 math and science inspectors 10/1985-16/1990 07/1987-03/1991 2.13 Rehabilitation and construction of 21 laboratories and conversion of 262 classrooms into science rooms 11/1985-12/1987 10/1987-06/1991 3. IMPROVEMENT OF EDUCATION MANAGEMENT - civil works, furniture, equipment 07/1985-12/1985 12/1987-09/1991 - specialist services 10/1985-04/1990 12/1990-12/1991 - training 10/1985-07/1990 10/1987-12/1991 4. REHABILITATION AND MAINTENANCE OF SCHOOL FACILITIES - civil works, furniture, equipment 01/1986-06/1990 10/1986-08/1991 - training 09/1986-12/1987 05/1989-07/1990 - preventive maintenance 10/1985-07/1990 03/1989-09/1991 5. STRENGTHENING OF PROJECT IMPLEMENTATION - civil works, furniture, equipment 10-12/1986 02/1990-09/1991 - specialist services 11/1985-06/1990 12/1987-11/1992 - training 07/1985-06/1990 08/1990-11/1992

Comments

(a) The delays in project implementation-except for the training of primary school teachers, which continued an activity started under the first project-were mainly due to (i) start-up delays, despite an almost punctual Credit Effectiveness, pending DEPE's setting-up, and reaching agreement with IDA on implementation arrangements; (ii) four changes of DEPE Directors over the project's life; and (iii) frequent changes in the MENRS Coordinators responsible for the primary level and lower secondary level components. - 17 -

(b) In the case of the LIMUSCO construction work (textbook component), the delay was the result of: (i) the time it took to decide on the site for LIMUSCO's central facility; and (ii) the decision not to repair the leased premises and instead to construct new outlets.

(c) For the provision of textbooks, the delay was the result of: (i) Government's initial limited commitment; (ii) the lengthy (unsuccessful) copyright negotiations between the Government and the French publishers; and (iii) the fact that it took longer than planned to adapt the texts to the Togolese environment.

(d) The procurement delays affecting the science facilities were caused by: (i) the complexity and length of local administrative procedures (clearance by three Ministers and by the Head of Government for contracts issued following competitive bidding in amounts of over CFAF 50 million); and (ii) overrun of the appraisal budget estimate.

(e) For components 3 and 5, rehabilitation of DGPE facilities was delayed by a change of site, after the military expelled DGPE from their offices--where rehabilitation was underway--to expand their camp. Specialist services were delayed until the Government and IDA agreed on consultants' selection. Training of project staff was delayed mainly because they were too busy preparing project and other activities.

(f) Preventive maintenance was delayed by DCEBS' lack of experience, despite BREDA's technical assistance, given the novelty of the component.

(g) Procurement of works and goods was sometimes hampered by (i) DEPE's slowness in making payment, owing to inadequate utilization of the Special Account (even after it was increased by about CFAF 200 million); and (ii) delays by the Ministry of Planning in approving withdrawal applications.

(h) Lastly, mention should be made of the sociopolitical situation, which disrupted all activity: (i) multiple strikes during 1991 and in early 1992; and (ii) following the resumption of activity in August 1992, new upheavals occurred in November of the same year. The situation progressively stabilized over 1993. - 18 -

5. Project Costs and Financing

A. Project Costs

US$000 CFAF million SDR 000

Appraisal Actual Appraisal Actual Appraisal Actual

Civil Works 1285 3102 591 911 1324 2350

Fumiture 269 102 124 29 277 77

Equipment 2716 3306 1250 972 2798 2504

Consultants 1397 892 642 260 1439 676

Training 3310 5174 1523 1531 3409 3920

Project Staff 318 131 146 39 328 99

Substitute Teachers 3040 4344 1398 1298 3131 3221

Operating Costs 1674 1813 770 528 1724 1375

TOTAL 14009 18864 6444 5568 14430 14222

Exchange rate: Appraisal: US$1 = CFAF 460.00 = SDR 1.03 Actual Average: US$1 = CFAF 295.17 = SDR 0.7539

Comments:

(a) Civil works: overrun resulted form start-up and implementation delays (inflation and further deterioration of facilities to be converted and/or rehabilitated), and from agreed expanded scope (25 new textbook stores, more rehabilitated classrooms and offices, and financing of sturdier concrete science benches instead of furniture). (b) Furniture: savings resulted from re-use of existing furniture and financing of concrete benches under the civil works category (see previous para.) (c) Equipment: savings in CFAF and SDR resulted from efficient international competitive bidding, and have been used to print more science textbooks and teachers' guides. (d) Consultants: savings resulted from relying on many more local specialists (chiefly from the University) than anticipated. (e) Training: overrun resulted from agreed additional training of science teachers (in equipment management and maintenance) and of more MENRS staff (in educational facility design, site supervision, accounting and management). (f) Project Staff: savings resulted from the appointment of more civil servants and less contractual staff than anticipated. (g) Substitute teachers: savings in CFAF resulted from the freezing of salaries. (h) Operating costs: savings in CFAF and SDR resulted from more use of local resources than expected (LIMUSCO had its own budget, and civil works were supervised by Gvt. staff), but also from start-up delays, and subsequent non-completion of the maintenance component. (i) General: actual/appraisal deviations vary depending on the currency, owing to the exchange rate fluctuations between the US$, the CFAF and the SDR (about 80% of expenditures were incurred in CFAF); the overrun, in US$ only, resulted from the exceptionally high exchange rate at appraisal. - 19 -

B. Project Financing

US$000 CFAF million SDR 000

Source Appraisal (%) Actual (%) Appraisal (%) Actual (%) Appraisal (%) Actual (%)

IDA 12 430 (89) 16 978 (90) 5 718 (89) 5 009 (90) 12 800 (89) 12 796 (90)

Government 1 579 (11) 1 886 (10) 726 (I1) 559 (10) 1 630 (11) 1 426 (10)

TOTAL 14099 18 864 6 444 5 568 14 430 14 222

Comments: The Government's financing was reduced from 11% to 10%, and from CFAF 726 million to CFAF 559 million.

C. Withdrawal of the Proceeds of the Credit (SDR)

Planned Revised Final (11/23/92 (Credit (8/21/90 Last Categorv Agreement) % Reallocation) % Disbursement) %

(1) Civil Works 1,340,000 100 2,279,000 100 2,350,382.36 100

(2) Furniture 310,00 100 70,000 100 144,759.94(c) 100

(3) Equipment 2,780,000 100 2,383,000 100 2,574,614.54 (d) 100

(4) Consultants 1,450,000 100 1,049,000 100 675,835.19 100

(5) Training 2,890,000 100 3,820,000 100 3,807,761.88 (e) 100

(6) Substitute Teachers 1,860,000 (a) 1,966,000 (b) 1,962,363.47 (f)

(7) Operating Costs 1,340,000 100 1,233,000 100 1,374,640.14 100

(8) Special Account 520,000 -

(9) Unallocated 310,000 _

TOTAL 12,800,000 12,800,000 12,796,117.36 (g)

Comments:

(a) Declining % of local expenditures = 100% until 6/30/86; 80% until 6/30/87; 60% until 6/30/88; 40% until 6/30/89; and 20% until 6/30/90. (b) Estimated amount of past withdrawals; all further expenditures under this category to be financed 100% by the Government. (c) Actually SDR 77,340 only for Furniture expenditures (balance for Training: uncorrected category misallocation). (d) Actually SDR 2,504,317 only for Equipment expenditures (balance for Training : uncorrected category misallocation) (e) Actually SDR 3,919,923 for Training expenditures, cf. (c) and (d) above. (f) Actual expenditures. (g) Undisbursed balance of SDR 3,882.64 cancelled 11/23/92. - 20 -

6. Proiect Results

A. Direct Benefits

Indicators Appraisal Estimate at Estimate at Full Development Estimate Closing Date

1 PRIMARY LEVEL l.A Training - kindergarten teachers 57 - monitors 1 329 - theoretical rate: 1,350 teachers - auxiliary teachers (IA) 5 8501 per year', subject to budgetary - IA and trainee auxiliary teachers (IAS) 3 706 provision for continued refresher - school principals 2 3642 training in the ENIs (issue being - inspectors and pedagogic advisers (PAs) 60 100' addressed under follow-up Education Management Project) - fumiture and equipment for use by PAs during inspections 18 17

L.B Textbooks - with support from the E.U.'s 7 - reading CP 1 120 000' 114 9726 PGI, 45 % of students could have - reading CP 2 94 900 102 704 these basic textbooks if the - reading CE 1 89 300 82 060 disparities in geographic - reading CE 2 70 500 55 796 distribution were corrected; or - reading CM 1 66 700 48 783 100% of students could have two of - reading CM 2 69 700 37 722 these books.

- math CP I 98 100 138 266 - math CP 2 77 900 123 340 - math CE I 58 400 22 586 - math CE 2 46 200 50 000 - math CM I 54 700 56 500 - math CM 2 57 200 41 000

- LIMUSCO bookstores newly built or 45Y 26 restored

2. LOWER SECONDARY LEVEL 2.A Training - Math and science teachers 1 250 1 600 - no operating budget for - Math and science inspectors 21 21 continuation of these activities

2.B Science Facilities - Rehabilitation, refurbishing and equipping - all existing CEGs have been of laboratories 21 21 provided with science labs, which - Conversion of classrooms into science should now be maintained. rooms 262 262

3. EDUCATION MANAGEMENT - studies 6 6 - staff training 25 20

4. REHABILITATION & MAINTENANCE - preventive maintenance of CEG - the remaining 50% to be fully classrooms 1 430 796 financed by the Government - CEG rehabilitation 234 2209 - staff training 2 8"' - maintenance manuals 13 000 5 500 - posters 13 200"

5. PROJECT IMPLEMENTATION - staff training 7 612 - 21 -

Comments

1. The SAR makes no distinction among the three categories of primary school teachers to be trained:

(a) Monitors, who have the primary school certificate and a few years of lower secondary school (college); there are village monitors, recruited locally by parents who have opened a school and provided it with one local teacher (maitre); then there are the prefecture monitors, employed by the regional authorities before being admitted into the civil service;

(b) Auxiliary Teachers ("Instituteurs adjoints, IA"), who have the CEAP (basic teaching certificate); and

(c) Trainee Auxiliary Teachers ("Instituteurs adjoints stagiaires, IAS"), who have the BEPC (Lower Secondary School Certificate) and who do not have the CEAP.

Kindergarten teachers were upgraded to help bridge the gap at the primary level.

2. These 2,364 school principals have all had one month's training; 992 of them have had an additional two-month session. Their training was not planned, but appeared as necessary to put them at par with the trained teachers they will manage.

3. It was not possible to determine the exact number of inspectors and pedagogic advisers who have received training; the component coordinator puts it at about a hundred.

4. This rate is at present theoretical; to take in 1,350 trainees, the ENIs should be repaired (buildings, equipment and furniture) and provided with an appropriate operating budget.

5. The figures in this column represent the number of textbooks planned to be produced in two printings.

6. The figures in this column represent the textbooks sold by LIMUSCO. But it is not possible to distinguish between sales to parents at the 93 LIMUSCO outlets and those made (at a 10% discount) to retail bookstores, or those made to charitable associations, which distribute the books to the schools free of charge. It is therefore difficult to analyze the sales activities of LIMUSCO's bookstores.

7. Under the General Import Program (PGI), the European Union is to supply some CFAF 700 million worth of textbooks to be leased to every primary student (one math book and one French book for CFAF 200 a year). IDA will therefore focus on the secondary level (Part 1.7.3 (c) (ii)).

8. At appraisal, it was proposed to restore 28 fully-owned LIMUSCO bookstores and 17 operated under a lease or loan arrangement. Later, it seemed preferable not to invest in premises that did not belong to LIMUSCO, but instead to build new bookstores to free up those that had been leased. In the end a total of 25 were built, and only 1 restored (at Pya). - 22 -

9. The SAR indicates that 234 CEGs built as permanent structures were to be rehabilitated. Taking account of a few closings (for lack of enrollments or because the structures were only temporary) it is considered that all these CEGs have been rehabilitated. The number of rehabilitated classrooms is not available. The works sometimes affected only part of the CEGs, most frequently only the building where the laboratory or science room was installed.

10. These comprised three professionals from the central Ministry and five regional supervisors.

11. The number of posters was not determined at appraisal. The mission was unable to see this material, since DCEBS has not kept any copies.

12. This comprises DEPE management and accounting staff. The other DGPE professionals having received fellowships for training or study trips are listed in components 3 and 4. In addition to this formal training, account should be taken of the in-service, ad hoc training given throughout the project by the accounting/auditing consulting firm and the financial and management consultant who assisted the project management unit. - 23 -

B. Studies

Study Purpose as Defined at Appraisal Status Impact of Studv

1. Adaptation du systeme - Study significant facts at the - Published August - These first seven studies served educatif a l'environnement socio- macroeconomic and sectoral levels 1991 as the basis for the Government's economique (Adaptation of the - Review education expenses and "Declaration of Education and education system to the propose an appropriate distribution Training Sector Policy"' socioeconomic environment) between the different levels of INSE, Togo education in light of manpower needs and budgetary constraints

2. D6veloppementdes ressources - Develop a supervisory mechanism - Published humaines (Human resource to monitor education cost trends September 1991 development) Togolese consulting firm

3. Coat et financementde - Evaluate the quality and efficiency - Published l'education au Togo (Cost and of the education system and make September 1991 financing of education in Togo) improvements Togolese consulting firm

4. Amelioration de l'efficacite - Published interne du systeme educatif September 1991 (Improvement of the intemal efficiency of the education system) Togolese consulting firm

5. Amelioration de la capacit6 de - Published gestion du systeme 6ducatif September 1991 (Improvement of the management capacity of the education system) Togolese consulting firm

6. L'ecole primaire en Afripue: - Published fonctionnement,qualite. produits: February 1991 le cas du Togo (The primary school in Africa; operation, quality, products: the case of Togo) French University

7. El6ments your une politique - Published educative nouvelle au TogO November 1991 (Components of a new education policy in Togo) French University

8. ADpuiA l'execution de la - Published October - This study served as the basis for carte scolaire nationale du Togo 1991 staff training and organization in (Support for creation of Togo's the Tchaoudjo prefecture. It national school map) provides the methodology, Togolese consulting firm conceptual and operational tools, and resources to be deployed to extend the school map to the entire country'

9. Formation d'evaluateurs de Evaluate educational projects and - Published March - Training for a group of teachers programme de formation du progiams 1991 in evaluation methodology and premierdegr6 (Training of application evaluators of primary school training program) Belgian University - 24 -

Study Purpose as Defined at Appraisal Status Impact of Study

10. Formation d'evaluateurs de - Published March - Ditto pro2ramme de formation du 1991 second degr6 (Training of evaluators of the lower secondary school training program) Belgian University

Comments:

1. The studies made available as a basis for preparation of the Declaration of Education and Training Sector Policy were distributed within MENRS, to the Ministries of Planning and Finance and to technical ministries, to promote discussion of education in terms of its goals, its content, and student graduation profiles.

2. The school mapping study was discussed in a seminar, which also served as an introduction of the methodology to MENRS staff. - 25 -

7. Status of Covenants

Covenant Purpose Status

2.02 (b) Special Account - CFAF account No. 9030 59095 0175 at Banque togolaise pour le commerce international (BTCI) for the duration of the project, from 06/13/1986 to 06/30/1992. The Authorized Allocation was increased by SDR 190,000 equivalent in July 1989.

2.03 Closing Date - Original closing date of June 30, 1991 was extended on June 24, 1992 to June 30, 1992.

3.01 (a) Diligence and - Delays in setting up the DEPE held up the effective start of most activities by at least one year. efficiency of project - Changes of leadership, delayed start on training, and sociopolitical upheavals from 1990 onwards execution adversely affected project implementation. - All MENRS directorates were associated with project implementation. - The local counterpart funding was made available (with the nuance that the operating budget for the two ENIs came directly from the IDA-financed training per diems).

3.01 (b) Implementation - The program was implemented, and sometimes exceeded (training), although with delays. program

3.01 (c) DGPE directorates - Maintained in conformity with the Credit Agreement.

3.01 (d) DGPE staffing - The additional Togolese staff were made available, but their performance has been hampered by delayed appointment, training and technical assistance.

3.02 Procurement - Agreed procedures were followed.

4.01 (a) Project accounts - Properly maintained, with recurrent short-term technical assistance (see Comments).

4.01 (b) Account audits - Appropfiate audit reports furnished to IDA, some with delays though.

4.01 (c) Statements of - Records and accounts properly maintained and audited. expenditure

4.02 Continuation of - Hampered by financial constraints and the sociopolitical situation (Issue being addressed under training programs new operation). and operation of facilities

4.03 Full-time - Admission into the civil service starting 09/30/1990. employment of - Of the 660 substitute teachers (of whom 450 were paid by the project), 434 were taken on full substitute teachers time on January 1, 1990. They were taken over by the project until August 31, 1991. Of these, 260 were admitted into the civil service in September 1991.

5.01 Effectiveness - 09/18/1985, instead of 07/28/1985.

5.02 Borrower's - The structure of the DGPE and its staffing were maintained at the date of the PCR. obligations under 3.01 (c) and (d).

Comments

4.01 (a) An accounting/auditing consulting firm installed the project accounting system, audited project accounts, provided training in materials control accounting [comptabilite matieres] to DGPE staff in 1992, and helped update the accounting records for the period 1986-1993.

An individual financial and management consultant was employed for:

- 16 weeks, between March 1988 and October 1989, to reconstitute the project management accounts; - 26 -

14 weeks, between November 1989 and May 1990, to set up the project budget monitoring system and train managers;

14 weeks, between November 1990 and March 1991, to participate in the preparation of bidding documents, bid evaluation, and training of local staff in procurement procedures; and

7 weeks, between April 1991 and February 1992, to update the project financial management system. - 27 -

8. Use of IDA Resources

A. Staff lnputs

Stage of Project Cycle Weeks Through Appraisal (including Appraisal) 142.0 Appraisal Through Effectiveness 5.3 Supervision 62.9 Completion 12.8 Total 223.0

B. Missions

Month/ Nurnber and Specialization of Staff Days Mission Year Participants in Field Reconnaissance 6/82 2 (E,GE) 10 Identification 9-10/82 3 (E,GE,AE) 15 Post-Identification 2/83 3 (E,2GE) 31 Preparation 4-5/83 8 (E,2GE,TS,DLS,GSE,AE,A) 131 Post-Preparation 7/83 3 (GE,A,MSTS) 18 Pre-Appraisal 10/83 6 (E,GE,AE,A,TS,MSTS) 90 Appraisal 3/84 4 (E,GE,A,TS) 52 Post-Appraisal 7/84 1 (LO) 3 Post-Appraisal 9/84 1 (EAS) 5 Post-Appraisal 11/84 2 (E,GE) 12 Post-Appraisal 11/84 1 (TS) 4 Post-Negotiations 6/85 1 (A) 6

Supervision and Completion (see table on next page) - 28 -

Number and Staff Month/ Specialization Days in Mission Year of Participants Field Performance Rating by Type of Problem

O D L M F P T TA S E FP

Supervision 1 3/86 1 (EP) 3 2 1 - 2 2

2 5/86 1 (A) 4 2 1 - 2 2

3 11/86 2 (As) 8 2 1 - 2 2 4 1/87 1 (EP) 4 2 2 - 3 2 5 9/87 2 (A,TS) 12 2 2 - 2 2

6 11/87 1 (GE) 14 2 2 - 2 2 7 6/88 2(GE,IS) 19 2 2 - 2 2

8 12/88 2(GE,IS) 6 - - - - -

9 7/89 1 (OA) 7 2 2 1 3 1 3 2 2 2 1 2 10 10/89 1 (OA) 6 1 2 1 2 1 2 2 2 2 1 2 11 6/90 2(OA, IS) 12 1 1 1 2 1 2 2 2 2 1 1

12 11/90 2(IS,RA) 11 2 2 1 2 1 2 2 2 2 1 1

(6/91 Mission cancelled owing to the sociopolitical situation; major educational aspects followed by IDA Education Specialist during missions for other projects in 2, 3, 10 and 11/91)

13 2/92 1 (IS) 10 2 2 2 2 2 2 2 1 2 - 2

Completion 9-10/93 2 (GE,FMS) 29

Symbols:

Specializations: E=Economist; GE=General Educator; AE=Agricultural Educator; TS=Textbook Specialist; DLS=Distance Learning Specialist; GSE=General Science Educator; A=Architect; MSTS=Mathematics and Science Teaching Specialist; LO=Loan Officer; EAS=Education Administration Specialist; EP=Education Planner; IS=Architect/Implementation Specialist; OA=Operations Assistant; RA=Research Assistant; FMS=Financial and Management Specialist.

Types of Problem for Performance: O=Overall Status; D=Development Impact/Objectives; L=Compliance with Legal Covenants; M=Management; F=Availability of Funds; P=Procurement Progress; T=Training Progress; TA=Technical Assistance Progress; S=Studies Progress; E=Environmental Aspects; F=Financial Performance.

Performance Rating: I =problem-free or minor problems; 2=moderate problems; 3 =major problems with solution underway; 4=major problems without solution underway (none in this project). - 29 -

Annex I

Educationexpenses in the rural areas of the rezions

R. I R.2 R.3 R.4 R.5 Overall estimated# of households 95 276 105 141 29 160 44 848 36 789 311 214 average householdsize 5.04 4.85 6.85 6.44 8.49 5.75 pop. density km2/region/l990 223 47 25 45 45 61 estimated 245 357 279 233 126 270 exp./month/household in CFAF estimatedexp./month/per 49 74 41 36 15 47 capita in CFAF estimatedexp./year/per capita 588 888 492 432 160 564 in CFAF cost of basic supplies, CP 1 1 370

Comments

(a) R. 1 = maritime region; R.2 = plateau region; R.3 = central region; R.4 = Kara region; R.5 = savanna region.

(b) The data on rural household expenses are taken from Telegramme Enquete, budget, consommation #11 (November 1992): "Household expenses in rural areas and in secondary urban centers-overall results," permanent data bank on living conditions of households. Directorate of Statistics, Ministry of Planning.

(c) The figures for population density per km2 (in 1990) are taken from the Rapport National sur la population togolaise (National Report on the Togolese Population) (September 1993), published by the Ministry of Planning.

(d) The cost of the requisite basic supplies, by level (circular No. 3023 MENRS of August 20, 1990) is updated each year by LIMUSCO.

For the upcoming school year, the mission took the example of CP 1, for which basic supplies are estimated at CFAF 1,370: Mon premier livre de lecture (My First Reading Book) (610), Le nouveau calcul quotidien (The New Daily Math Book) (295), one 32-page notebook (65), one small drawing book (75), one blue ballpoint pen (50), one pencil (25), one slate (45), one ruler (30), one eraser (25), one report book (110), one khaki book cover (40).

This sum (expense per student, the lowest for all students enrolled in primary school), representsmore than twice the annual educationexpense of a rural dweller. To these items of expenditureshould be added the school bag, clothes and possiblyshoes. - 30 -

Annex 2

Primary school reading and math textbooks financed by the project Trends in retail prices to the public

1989/90 1990/91 1991/92 1992/93 1993/94

CP 1 Reading 500 (430) 550 (430) 550 (430) 600 Math 275 (330) 275 (330) 290 CP 2 Price Reading 545 (460) 585 (460) 585 (460) 640 scale Math 300 (330) 300 (330) 310 from CE 1 310 Reading 725 (520) 775(520) 775 (520) 840 to Math 395 (330) 395 650

CE 2 for Reading 865 (570) 865 (570) 865 (570) 930 all Math 430 books CM 1 (d) Reading 865 (570) 865 (570) 865 (570) 970 Math CM 2 Reading 910 (600) 910 (600) 910 (600) 975 Math

Comments

(a) All prices are expressed in CFAF.

(b) The figure shown in parentheses is the price initially estimated by LIMUSCO at appraisal.

(c) According to LIMUSCO, the price differentials are attributable to increased manufacturing and distribution costs. On the other hand, the purchasing power of the communities has declined even further since the start of the sociopolitical upheavals.

(d) Source: March 1994 IDA follow-up mission to LIMUSCO. - 31 -

Annex 3

The LIMUSCO bookstores

1. New LIMUSCO bookstores built under the project, by prefecture and locality (in parentheses): TONE (Tandjoare), OTI (Gando), BINAH (Ketao), BASSAR (Guerin-Kouka, Kabou), TCHAMBA (Kaboli, SOTOUBOUA (Adjandi, Blitta, Pagala-Gare), OGOU (Glei), AMOU (Hiheatro, Amou-oblo), WAWA (Tomegbe), KLOTO (Kpalime, Danyi Apeyemi), ZIO (Agbelouve -visited by the mission), YOTO (Ahepe), VO (Hahotoe), LACS (Agbedrafo, Aklakou, Afangnan, Glidji), GOLFE (Agoe-nyeve, Adidogome, Akod&sswa).

2. The rehabilitated store is the one at Pya, in KOZAH prefecture.

3. DCEBS is not involved in maintenance of these buildings, since this is LIMUSCO's responsibility. But LIMUSCO has not yet allocated any funds for this purpose and does not have the necessary technical capabilities. Given that LIMUSCO is an agency of MENRS, DCEBS would be well advised to pay attention to these buildings, which are starting to deteriorate (for example, water erosion at the foot of the walls, damage from stones thrown at the roof).

4. Each storekeeper keeps eight notebooks:

- monthly expenses (small purchases for the day-to-day running of the store); - payments to LIMUSCO (with postal order stubs); - price increases and discounts (instructions sent from the central office); - delivery slips (list of books and supplies received, showing delivery slip number); - cash flow (daily cash flow, but without identification of items sold; there is no way of knowing whether the figures correspond to books, pencils, notebooks, etc.); - damaged and missing items (inventory taken upon receipt of goods; identification of items that are damaged or missing-there were frequent notifications to this effect); - night-watchman's wages (the storekeeper shows the amount and date of payment of the night-watchman's wages); - visits to clinic (if the storekeeper or night-watchman falls sick, he goes to the clinic, and the doctor or nurse writes the reason for the visit in the notebook).

5. Notes on the bookstore visited

(a) The storekeeper is employed under contract, is not a seconded teacher, and receives CFAF 42,000 per month. He has not received the brief training offered under the project, but completed a five-month internship at the central depot, acquiring knowledge not always relevant to the tasks that he has to perform in his store.

(b) He takes quarterly inventory of books and supplies. He is liable for all missing items and must pay for them himself, unless he identified them as missing in his incoming inventory. However, if anything is stolen (in the event of a break-in or any other event beyond his control), he is not held liable. - 32 - (c) This storekeeper's notebookswere particularly well kept. On the other hand: (i) the store is not attractive, it is a simple storeroom without any attempt at decoration; (ii) the books and supplies are stored very untidily and the place is dirty, all of which leads to the deteriorationof the articles for sale; and (iii) the indexingsystem is very disorganized. All this denotes a lack of guidanceand monitoringon the Dart of LIMUSCO's central office and inadequatetraining. And the storekeeper cannot be blamed for the fact that the schools have been closed since November 16, 1992 (almost a year); the lack of visitors and customers is not conduciveto the keeping of a clean and tidy store.

(d) According to the storekeeper, in this small communeof AgbWlouv6:(i) over half the students have no books; (ii) the teachers do not buy books; (iii) the books do not reach the neighboring villages, being too expensive and also unknown; and (iv) the teachers do not explain the value of books to the parents. His sales consist almostexclusively of suppliesand a few copies of the math book, Le nouveau calcul quotidien. - 33 -

Annex 4

Audit Reports

End of fiscal year Submission deadline Report date Delay

- 12/31/1986 04/30/1987 02/25/1988 10 months - 12/31/1987 04/30/1988 02/25/1989 10 months - 12/31/1988 04/30/1989 05/17/1989 0 month - 12/31/1989 04/30/1990 07/31/1990 3 months - 12/31/1990 04/30/1991 06/27/1991 2 months - 12/31/1991 04/30/1992 05/29/1992 1 month - 12/31/1992 04/30/1993 09/30/1993(a) 11 months

Comments

(a) The last audit report was received at IDA's Resident Mission on March 21, 1994, delayed by the sociopolitical events.

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