Document of The World Bank

Public Disclosure Authorized Report No: ICR2414

IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA-37390 IDA-H0230)

ON A

CREDIT

Public Disclosure Authorized IN THE AMOUNT OF SDR 14.50 MILLION (US$19.13 MILLION EQUIVALENT)

AND A DEVELOPMENT GRANT

IN THE AMOUNT OF SDR 17.50 MILLION (US$23.21 MILLION EQUIVALENT)

TO THE

REPUBLIC OF CHAD

FOR AN

Public Disclosure Authorized EDUCATION SECTOR REFORM PROJECT

DECEMBER 3, 2012

Africa Education Department AFCW3 Africa Region

Public Disclosure Authorized

CURRENCY EQUIVALENTS (Exchange Rate Effective December 3, 2012)

Currency Unit = CFA CFA 1.00 = US$0.0019 US$ 1.00 = CFA503

FISCAL YEAR January 1-December 31

ABBREVIATIONS AND ACRONYMS APE Association des Parents d'Eleves (Parent-Teacher Association) APL Adaptable Program Loan APICED Agence pour la Promotion des Initiatives Communautaires en Education (Community Initiative Support Agency for Education Development) CAS Country Assistance Strategy (Strategie d’Assistance au pays) CNC Centre National des Curricula (National Curricula Center) CT Community Teacher CP Cours Preparatoire (Grades 1-2 of primary education) CE Cours Elémentaire (Grades 3-4 of primary education) CESP/PARSET Chad Education Sector Reform Project/ Programme d'Appui a la Reforme du Secteur de l'Education au Tchad CM Cours Moyen (Grades 5-6 of primary education) DAPRO Direction de l'Analyse et de la Prospective (Ministere de l’Education Nationale's Planning Directorate) ECD Early Childhood Development EISP Education Interim Sector Plan ELN National Languages Reading Program EMIS Education Management Information System EMP Environmental Mitigation Plan ENI Ecole Normale d'Instituteurs (Teacher Training Institute) ESMF Environmental and Social Management Framework ESP Education Sector Plan ESRP Education Sector Reform Project FA Financing Agreement FENAPET Fédération Nationale des Associations de Parents d'Élèves au Tchad (National Federation of Parents' Associations) FM Financial Management FMR Financial Management Review GDP Gross Domestic Product GER Gross Enrollment Rate GIZ Deutsche Gesellschaft fur Internationale Zusammenarbeit GPEF Global Partnership for Education Fund HDI Human Development Index HIPIC Highly Indebted Poor Countries ICR Implementation Completion and Results Report

IDA International Development Association IESP Interim Education Sector Plan IFR Interim Financial Report IRI Interactive Radio Instruction ISDS Integrated Safeguards Data Sheet IT Information Technology LDG Local Donors Group MDG Millennium Development Goal M&E Monitoring and Evaluation MEN Ministry of Education MP-ACCES Manuel de Procedures pour l'Appui aux Collectivites pour la Construction et l'Equipement Scolaire (Manual of Procedures for Community Support for School Construction and Equipment) MTR Mid-Term Review NGO Non-Governmental Organization PAD Project Appraisal Document PDO Project Development Objective PRSP Poverty Reduction Strategy Paper SIL Specific Investment Loan SWAP Sector Wide Approach TVET Technical and Vocational Education Training UNDP United Nations Development Programme UGL Unite de Gestion du Livre (Textbook Management Unit)

Vice President: Makhtar Diop Country Director: Ousmane Diagana Sector Manager: Peter N. Materu Project Team Leader: Boubou Cissé ICR Team Leader: Boubou Cissé

REPUBLIC OF CHAD EDUCATION SECTOR REFORM PROJECT

CONTENTS

Data Sheet A. Basic Information B. Key Dates C. Ratings Summary D. Sector and Theme Codes E. Bank Staff F. Results Framework Analysis G. Ratings of Project Performance in ISRs H. Restructuring I. Disbursement Graph

1. Project Context, Development Objectives and Design ...... 1 2. Key Factors Affecting Implementation and Outcomes ...... 7 3. Assessment of Outcomes ...... 13 4. Assessment of Risk to Development Outcome ...... 21 5. Assessment of Bank and Borrower Performance ...... 22 6. Lessons Learned ...... 24 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners ...... 25 Annex 1. Project Costs and Financing ...... 26 Annex 2. Outputs by Component ...... 28 Annex 3. Economic and Financial Analysis ...... 44 Annex 4. Bank Lending and Implementation Support/Supervision Processes ...... 48 Annex 5. Beneficiary Survey Results ...... 51 Annex 6. Stakeholder Workshop Report and Results ...... 52 Annex 7. Summary of Borrower's ICR and/or Comments on Draft ICR ...... 53 Annex 8. Comments of Cofinanciers and Other Partners/Stakeholders ...... 55 Annex 9. List of Supporting Documents ...... 56 MAP

A. Basic Information

Education Sector Country: Chad Project Name: Reform Project Project ID: P000527 L/C/TF Number(s): IDA-37390,IDA-H0230 ICR Date: 12/20/2012 ICR Type: Core ICR GOVERNMENT OF Lending Instrument: SIL Borrower: CHAD Original Total XDR 32.00M Disbursed Amount: XDR 28.16M Commitment: Revised Amount: XDR 32.00M Environmental Category: B Implementing Agencies: Ministère de l'éducation nationale Cofinanciers and Other External Partners:

B. Key Dates Revised / Actual Process Date Process Original Date Date(s) Concept Review: 01/08/2001 Effectiveness: 12/17/2003 12/17/2003 Appraisal: 05/29/2002 Restructuring(s): 12/27/2010 Approval: 03/18/2003 Mid-term Review: 04/26/2007 Closing: 06/30/2007 06/30/2012

C. Ratings Summary C.1 Performance Rating by ICR Outcomes: Moderately Unsatisfactory Risk to Development Outcome: Substantial Bank Performance: Moderately Unsatisfactory Borrower Performance: Moderately Unsatisfactory

C.2 Detailed Ratings of Bank and Borrower Performance (by ICR) Bank Ratings Borrower Ratings Moderately Moderately Quality at Entry: Government: Unsatisfactory Unsatisfactory Implementing Quality of Supervision: Moderately Satisfactory Moderately Satisfactory Agency/Agencies: Overall Bank Moderately Overall Borrower Moderately Performance: Unsatisfactory Performance: Unsatisfactory

C.3 Quality at Entry and Implementation Performance Indicators Implementation QAG Assessments Indicators Rating Performance (if any) Potential Problem Project Quality at Entry Yes None at any time (Yes/No): (QEA): Problem Project at any Quality of Yes None time (Yes/No): Supervision (QSA): DO rating before Moderately

Closing/Inactive status: Satisfactory

D. Sector and Theme Codes Original Actual Sector Code (as % of total Bank financing) Central government administration 25 25 Other social services 15 10 Primary education 50 55 Secondary education 5 5 Vocational training 5 5

Theme Code (as % of total Bank financing) Decentralization 14 15 Education for all 29 30 Gender 14 20 HIV/AIDS 14 15 Rural services and infrastructure 29 20

E. Bank Staff Positions At ICR At Approval Vice President: Makhtar Diop Callisto E. Madavo Country Director: Ousmane Diagana Ali Mahmoud Khadr Sector Manager: Keiko Inoue Laura Frigenti Project Team Leader: Boubou Cisse Mourad Ezzine ICR Team Leader: Marie-Helene Cloutier ICR Primary Author: Pierre Joseph Kamano Emanuela Di Gropello

F. Results Framework Analysis

Project Development Objectives (from Project Appraisal Document) The Government is committed to achieving the Millennium Development Goals. In terms of education, this means providing universal quality basic education by 2015. This project is the first 5-year phase of this long term endeavor, which is one of in-depth policy and institutional reforms. Its objective is to ensure that the framework for quality universal basic education is in place and ready for implementation. It places an emphasis on developing an effective partnership between the State and the communities, creating a national technical capacity for curricula and textbook development, and improving basic education quality and efficiency. At the end of the project, these objectives will translate into stronger institutional and managerial capacity, increased enrollment rates, more equitable access and better education quality and efficiency.

Revised Project Development Objectives (as approved by original approving authority) The Project Development objective is to (i) improve access and equity for primary education, and (ii) increase capacity in strategic management and curriculum development.

(a) PDO Indicator(s)

Original Target Formally Actual Value Values (from Revised Achieved at Indicator Baseline Value approval Target Completion or documents) Values Target Years Community schools integrated through application of policy & manag. provision described in : (a) state-community partnership dated Aug. 2001; (b) Proj Impl. Indicator 1 : Manual; (c) operational directives for manag of Community Teachers (CTs) (d) the program Value NA (Dropped quantitative or No Yes at Yes Qualitative) restructuring) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments A Decree was signed in 2001 to integrate Community schools as part of the (incl. % education system and provide state subsidies for community teachers. (already achievement) achieved by appraisal). Curriculum and textbooks develop. capacity exists: (a) CP1/CP2 bilingual curricula developed; (b) reading/math textbooks, all grades, ratio of 1:1 and Indicator 2 : science, grades 3 to 6, ratio of 1:2; and (c) new primary bilingual curriculum tested/published/ready Curriculum for Value Grades 1 to 4 quantitative or No Yes is validated Yes Qualitative) and piloted in 30 schools Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments At restructuring only piloting of bi-lingual curriculum & textbooks (incl. % Curriculum for grades 1-6 (more than planned for Grades 1-4) were developed &

achievement) validated, along with textbooks (which was not part of the target). The pilot was conducted in 10 schools. A new literacy strategy is put in place through successful adaptation of the Indicator 3 : outsourcing approach Value quantitative or No Yes Yes Yes Qualitative) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments A new literacy was developed and used to covers 20,000 adults (of which 70% (incl. % women) from 2004-2009. achievement) Indicator 4 : Gross enrolment rate (overall) Value NA (Dropped quantitative or 72% 87% at 91% Qualitative) restructuring) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/30/2011 Comments At restructuring GER was probably on target. Even though the GER was dropped (incl. % at restructuring, the actual in 2010-11 is 91%. achievement) Indicator 5 : Girls to boys ratio in the elementary (overall) Value Dropped at quantitative or 0.63 0.77 0.75 restructuring Qualitative) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/30/2011 Comments (incl. % Despite improvement in girls' education, the ratio set was not achieved. achievement) Indicator 6 : 6th grade survival rate (overall) Value NA (Dropped quantitative or 44% 70% at 36% Qualitative) restructuring) Date achieved 06/30/2000 06/30/2006 06/30/2010 06/30/2011 Comments This indicator which was used initially to measure internal efficiency (incl. % deteriorated instead of improving. achievement) Enrollment rates in the following 8 departments: Lac, Borkou, Ennedi, Tibesti, Indicator 7 : Salamat, Bata west, Bata East, and Biltine Enrollment rate in targeted Bata: 76%; Value areas: LAC: 40%; quantitative or <40% 65% Bata: 66%; BET: 21%-38% Qualitative) LAC: 53%; Salamat: 71% BET: 81%; Salamat: 70% Date achieved 06/30/2000 06/30/2006 06/30/2010 06/11/2012 Comments At project closing, only two regions (Bata and Salamat) reached the targets. In (incl. % the 8 departments, GER varies from 21% to 76% achievement)

Indicator 8 : Interim education sector Plan (IESP) adopted by the Government Value NA (New at quantitative or No (New at restructuring) Yes No restructuring) Qualitative) Date achieved 12/29/2010 12/30/2010 12/29/2010 06/01/2012 Comments The document has been prepared and has been approved at the end of July 2012. (incl. % It is part of the country request package for the GPEF. achievement) Direct Project Beneficiaries (number) of which female (%). Beneficiaries are Indicator 9 : community teachers and students in public primary schools in targeted zones 13,200 community 13,200 community teachers of teachers of which Value which 20% NA (New at 25.15% are women; quantitative or New at restructuring women; and restructuring) and 166,341 Qualitative) 123,000 students of which students of 34.32% are women which 43% women Date achieved 12/29/2010 12/30/2010 12/29/2010 06/11/2012 Comments The targets were reached. However, the proportion of female was lower than (incl. % expected. achievement) Indicator 10 : Ratio of Girls to Boys in primary level in tageted areas New at restructuring Bata: 1.00; Value Bata: 1.03; LAC: In 2008, Batha (1.10), LAC: 0.80; quantitative or NA 0.60; BET: 0.78; LAC (0.60), BET (0.60), BET: 0.80; Qualitative) Salamat: 0.46 Salamat (0.45) Salamat: 0.70 Date achieved 12/30/2010 12/30/2010 12/30/2010 06/11/2012 Comments The modifications at restructuring allowed focusing on targeted areas. However, (incl. % project targets were met for Bata and fundamentally BET only. achievement)

(b) Intermediate Outcome Indicator(s)

Original Target Actual Value Formally Values (from Achieved at Indicator Baseline Value Revised approval Completion or Target Values documents) Target Years Indicator 1 : Grade one admission rate Value NA (Dropped Boys: 90%; Girls: Boys: 132%; Girls: (quantitative Boys: 82%; Girls: 70% at 85% 108% or Qualitative) restructuring) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/30/2011 Comments The targets were achieved by end of project, but not at restructuring. However, (incl. % concern about data reliability may alter the gains. achievement) Indicator 2 : Grade 6 survival rate disaggregated by gender

Value NA (Dropped Boys: 75%; Girls: Boys: 38%; Girls: (quantitative Boys: 53%; Girls: 35% at 65% 33% or Qualitative) restructuring) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/30/2011 Comments Instead of increasing, the survival rate declined indicating a low internal (incl. % efficiency. achievement) Indicator 3 : Percentage Gap between Girls and Boys Gross Enrolment Rate Value NA (Dropped 30.85% (decrease 27% (decrease of (quantitative 36.3% at of 15%) 25.6%) or Qualitative) restructuring) Date achieved 06/30/2004 06/30/2006 12/29/2010 06/30/2011 Comments After restructuring it was agreed to have indicators tied to the project (incl. % interventions. The girls' gap was then focused on targeted zones. achievement) The APICED has been created, is funded by the state and fully operational, and Indicator 4 : at least 7,000 communities have been trained and receive state subsidies through APICED Value The APICED (quantitative No Yes is fully Yes or Qualitative) operational Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments (incl. % APICED was created since 2003 and supported transfer of resources to CTs. achievement) Indicator 5 : New classrooms built and furnished at primary level Value (quantitative 0 2400 400 400 or Qualitative) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments Before restructuring, the project built 400 classrooms in existing schools, which (incl. % was agreed to be the end of project target. Thus the end of project target was achievement) revised to 400 classrooms. Indicator 6 : Students receiving de-worming and micro nutriments per year 90,000 received de- Value NA (New at worming and (quantitative 0 90,000 restructuring) micronutrients or Qualitative) twice a year. Date achieved 06/30/2009 12/29/2010 12/29/2010 06/01/2012 Comments Although school health received a substantial financing since the beginning of (incl. % the project and de-worming activities were successfully implemented reaching achievement) 150,000 students twice a year, it is at restructuring that an indicator was set. Indicator 7 : Bilingual curricula developed, tested, and put into use in Grades 1 and 2 Value Dropped at (quantitative No Yes Yes in all grades restructuring or Qualitative) Date achieved 06/30/2000 09/01/2005 12/29/2010 06/01/2012 Comments The bilingual curriculum was developed with GTZ support and achieved before

(incl. % restructuring. Thus there was no need to continue. achievement) Percentage of community teachers trained (level 1 and level II) having received Level I (basic) training and that are certified increases from 15% in 2002/03 to Indicator 8 : 51% in 2006/07. For level II (full certification) the percentage increases from 5% to 18%. Number of additional qualified teachers Value 51% (level 1); 18 resulting from 11180 (Level 1) (quantitative 15% (level 1); 5 (level 2) (level 2) project and 1,700 (Level 2) or Qualitative) intervention: 11,500 (Level 1) and 1,700 (Level 2) Date achieved 06/30/2003 06/30/2007 12/29/2010 06/01/2012 Comments (incl. % After restructuring, project targets were met. achievement) Indicator 9 : Training structures at different levels have appropriate adapted training curricula Training Value curriculum for (quantitative No Yes primary Yes or Qualitative) teachers is adapted Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments Teachers training curriculum for primary teachers was developed in a (incl. % participatory approach involving the CNC and relevant directorates as well as achievement) ENIs. New textbooks are developed for math and reading and are distributed to all Indicator 10 : schools (ratio of textbooks per student) Number of 3,777,000 (ratio of Value Textbooks textbooks per (quantitative 7:1 1:1 purchased and student is or Qualitative) distributed: uncertain). 2,617,00 Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments Existing textbooks were purchased and adopted to the national context and (incl. % teachers guides also developed and distributed to all schools in 2005. achievement) Standardized diagnostic instruments for primary schools assessment of learning Indicator 11 : are available for classroom piloting, and used system wide for grades 1 and 2 (CP) System for Value learning level (quantitative No Yes No (0) (rating scale): or Qualitative) Yes (1) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012

Comments (incl. % No activity related to standardized testing was developed. achievement) Action plans for nationwide application of early childhood, IRI, and school Indicator 12 : health are developed Value Dropped at (quantitative No Yes No restructuring or Qualitative) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments ECD and IRI activities were not funded under the project. Thus no activity was (incl. % implemented and the sub component was dropped at restructuring. However, the achievement) school health strategy was developed and implemented. A new adult literacy program implementation system, based on outsourcing is Indicator 13 : put in place Value (quantitative No Yes Unchanged Yes or Qualitative) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments The new program was used to train 20,000 adults through outsourcing contracts (incl. % with NGOs and civil society organizations. This indicator was achieved in 2005 achievement) and was the basis for developing literacy activities. Adults enrolled in functional literacy courses financed according to the Indicator 14 : outsourcing strategy Value (quantitative 0 50,000 20,000 20,000 or Qualitative) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments The number of adults trained to level 1 at restructuring was considered as the end (incl. % of project revised target, and activities were stopped. achievement) Youth are enrolled in alternative basic education programs (e.i. EBNF) financed Indicator 15 : according to outsourcing strategy Value Dropped at (quantitative 0 15,000 0 restructuring or Qualitative) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments This indicator and its related activities were not funded. Therefore it was dropped (incl. % at restructuring. achievement) Post Literacy Booklets are acquired in five languages dealing with various Indicator 16 : themes Value Dropped at (quantitative 0 15,000 0 restructuring or Qualitative) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments (incl. % No booklet in local languages was developed. achievement)

A sector development program largely incorporating secondary and higher Indicator 17 : education is developed and is approved by the Borrower and the relevant stakeholders Value Dropped at (quantitative No Yes No restructuring or Qualitative) Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments Before restructuring the sector development program was not in place. At (incl. % restructuring, the Bank and the Government agreed to have an Interim sector achievement) plan adopted. Interim plan was adopted after project closing. Indicator 18 : The CNC is put in place and is fully operational Technical audit Value completed to (quantitative No Yes confirm CNC Yes or Qualitative) meet specifications: Yes Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments The CNC is in place and fully operation with technical staff trained. The CNC (incl. % audit was not conducted to see if specifications are met. However, during the achievement) field visit, the ICR team found the facility in place with equipment. Indicator 19 : Management of the School Map is improved and facilitates projection of needs Education statistical Value yearbook (quantitative No Yes No published or Qualitative) according schedule: Yes Date achieved 06/30/2000 06/30/2006 12/29/2010 06/01/2012 Comments Before restructuring, EMIS improved marginally. After restructuring, delays (incl. % were still observed with publication of education data and reliability and achievement) dissemination are limited. Indicator 20 : CNC report to assess pilot program prepared Value NA (New at (quantitative No Yes No restructuring) or Qualitative) Date achieved 12/29/2010 12/30/2010 12/29/2010 06/01/2012 Comments A pilot was conducted on all primary grades curriculum and textbooks in 10 (incl. % schools. The report is expected on July, soon after school closing to finish with achievement) the pilot. Indicator 21 : Report to assess pilot transfer system prepared Value NA (New at (quantitative No Yes No restructuring) or Qualitative) Date achieved 12/29/2010 12/30/2010 12/29/2010 06/01/2012 Comments A study was conducted to develop a framework for the transfer. However, the (incl. % pilot was not in place and the assessment could not take place.

achievement) Primary classrooms in targeted zones with equipment and access to water and Indicator 22 : latrines. Value 465 latrines 465 latrines and (quantitative 400 latrines and 100 wells and 255 wells 255 wells or Qualitative) Date achieved 12/30/2010 12/30/2010 06/11/2012 Comments This is a new indicator approved at restructuring and it was achieved. In addition, (incl. % the project provided students desks to 132 classrooms in targeted zones, and achievement) 12,000 other for schools around the country including secondary schools.

G. Ratings of Project Performance in ISRs

Actual Date ISR No. DO IP Disbursements Archived (USD millions) 1 05/13/2003 Satisfactory Satisfactory 0.00 2 11/26/2003 Satisfactory Unsatisfactory 0.00 3 01/13/2004 Satisfactory Unsatisfactory 0.00 4 06/25/2004 Satisfactory Satisfactory 1.98 5 08/18/2004 Satisfactory Satisfactory 2.10 6 01/27/2005 Satisfactory Satisfactory 3.81 7 04/21/2005 Satisfactory Moderately Satisfactory 5.14 Moderately Moderately 8 05/05/2005 5.43 Unsatisfactory Unsatisfactory Moderately 9 12/19/2005 Unsatisfactory 9.81 Unsatisfactory 10 06/07/2006 Unsatisfactory Unsatisfactory 12.28 Moderately Moderately 11 09/01/2006 14.16 Unsatisfactory Unsatisfactory Moderately Moderately 12 06/26/2007 16.52 Unsatisfactory Unsatisfactory 13 10/30/2007 Moderately Satisfactory Moderately Satisfactory 21.38 Moderately Moderately 14 06/30/2008 25.60 Unsatisfactory Unsatisfactory Moderately Moderately 15 08/31/2008 27.26 Unsatisfactory Unsatisfactory Moderately Moderately 16 03/13/2009 30.19 Unsatisfactory Unsatisfactory Moderately Moderately 17 06/17/2009 30.67 Unsatisfactory Unsatisfactory Moderately 18 12/07/2009 Moderately Satisfactory 33.83 Unsatisfactory Moderately 19 06/28/2010 Moderately Satisfactory 35.34 Unsatisfactory 20 03/26/2011 Moderately Satisfactory Moderately Satisfactory 37.83 21 12/26/2011 Moderately Satisfactory Moderately Satisfactory 40.69

Moderately 22 07/10/2012 Moderately Satisfactory 41.75 Unsatisfactory

H. Restructuring (if any)

ISR Ratings at Amount Board Restructuring Disbursed at Restructuring Reason for Restructuring & Approved Restructuring Date(s) Key Changes Made PDO Change DO IP in USD millions The PDO was revised to reflect simplification and what has been learned through project implementation, especially on selecting relevant indicators to measure the revised intermediate and final outcomes 12/27/2010 Y MU MS 37.28 of the project. The project's design was also simplified and components were reduced to two and the sub-components reorganized and regrouped in line with the two new components and their number reduced from 19 to 9.

If PDO and/or Key Outcome Targets were formally revised (approved by the original approving body) enter ratings below: Outcome Ratings Against Original PDO/Targets Moderately Unsatisfactory Against Formally Revised PDO/Targets Moderately Satisfactory Overall (weighted) rating Moderately Unsatisfactory

I. Disbursement Profile

1. Project Context, Development Objectives and Design

1.1 Context at Appraisal 1.1.1. Chad is a landlocked country spanning 1.2 million km2; with a population of 11 million according to the 2009 Census and a growth rate of 3.6 percent, one of the highest in the world. Since its independence in 1960, the country has experienced crises due to cyclical and external factors, including instability and conflict—arising from tensions between different religious and ethnic factions, further fuelled by interference from neighboring states—which constrained its economic growth. The country began producing oil in 2004, thus increasing its revenues substantially. In 2009, Chad was among the poorest countries in the world, with around 55 percent of the population living below the poverty line and about 36 percent of the population living in extreme poverty.1 Poverty is primarily concentrated in rural areas, where 87 percent of the country’s poor live. Chad is ranked 183th out of 187 countries on the 2011 United Nations Development Programme3 (UNDP) Human Development Index (HDI). Following the current trend, Chad is not expected to attain any of the millennium development goals (MDGs) by 2015. 1.1.2. Chad, part of France’s African holding until 1960, had also endured three decades of civil warfare, including a civil war in 1979, as well as invasions by Libya before relative peace was finally restored in 1990. A democratic constitution was drafted and flawed presidential elections were held in 1996 and 2001. In 1998, a rebellion broke out in northern Chad, which continues to flare up despite several peace agreements that had been made between the Government and rebel factions. In 2005, new rebel groups emerged in western Sudan that launched attacks into eastern Chad despite signing peace agreements in December 2006 and October 2007. In 2005, President Idriss Deby held a referendum successfully removing constitutional term limits, winning another controversial election in 2006. Sporadic rebel incursions continued throughout 2006 and 2007, with N’Djamena (the capital) experiencing a significant rebel threat in early 2008. In 2011, President Deby was reelected to his fourth term in a relatively fair election. 1.1.3. At the time of project appraisal in 2003, the education system in Chad consisted of: (a) six years of primary education beginning at age 6; (b) four years of lower and three years of upper secondary education; and (c) higher education at the University of N’Djamena and in two specialized technical institutions. Teachers were trained at the upper secondary level for service in primary schools and at the university level for secondary schools. Primary and secondary schools as well as teacher training and literacy programs were managed by the Ministry of Education (Ministere de l'Education Nationale - MEN), while higher education was managed by the Ministry of Higher Education and Research. Primary education was provided in three types of schools: 1.1.4. Public schools hosted 75 percent of students, and were heavily supported by parents who hired and provided remuneration to many of their teachers.

1 ECOSIT2 data, 2003

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1.1.5. Private schools hosted 9 percent of primary students, 14 percent of secondary students, 3 percent of vocational and technical education training (TVET) students, and 17 percent of tertiary education students. 1.1.6. Community schools. Following the country's independence in 1960 and the civil war (starting in 1979), Parents’ Associations (Association des Parents d'Elèves - APE) assumed increasing responsibilities for primary education. Community schools enrolled 19 percent of all students and had 56 percent of the teaching force working in primary education in 2000. Between 1995 and 2000, Chad made remarkable progress in primary education; the gross enrollment rate (GER) increased from 62 to 88 percent for boys and from 32 to 55 percent for girls. Despite this encouraging sign, the education system had a number of persistent weaknesses including: 1.1.7. Financial constraints: Although Government spending had shifted in favor of education beginning in the late 1990s, reaching 21.4 percent of total current expenditure, public expenditure on education accounted for less than 3 percent (2.8 percent) of GDP. This had resulted in households’ needing to contribute substantially to the cost of education (around 15 percent of total cost). 1.1.8. Poor infrastructure. Most schools had to be set up by parents and communities, who could not afford to pay for permanent structures. Thus 52 percent of the classrooms were held in open-air, thatched huts (seckos), or in other temporary structures (poto-poto). As a result, classes were frequently cancelled due to inclement weather conditions. 1.1.9. Wide regional and gender disparities. Primary enrollment was almost universal in some parts in the South, but the GER was less than 42 percent in most of the north and eastern provinces. In addition to other factors, the choice of French as the sole language of instruction and the lack of relevance of the existing programs to the cultural values of most Arabic-speaking and/or Muslim populations have been major impediments to achieving gender equity in the Arabic-speaking provinces. Moreover, 84 percent of schools had no female teachers, which was also considered by many as another major obstacle to girls’ enrollment. 1.1.10 Post- primary education. Enrollment in general secondary education rose substantially, on average over 12 percent annually between 1995 and 2000. In addition, on average there were 84 students per class, enrolled mostly in the study of arts and humanities. Repetition rates fell between 24 and 44 percent depending on the grade level. The enrollment ratio of boys to girls was 5 to 1. Enrollment in TVET represented 2 percent of total enrollment in secondary education, but was delivered in more than 60 (generally public) institutions under the direction of four different ministries, and concentrated in the capital city and in the southern part of the country. Enrollment in higher education increased sharply between 1996 and 2000 where total enrollment doubled, reaching 6,700 students. The higher education system was facing serious challenges related to education quality and relevance. 1.1.11. In January 2000, the Government prepared an education sector strategy that focused, in particular, on primary education and literacy. The key policies and actions that would ensure and sustain the operationalization of this strategy were to be addressed by an education sector strategy support program which was estimated at US$ 119.6 million to be financed by various donors (see Annex 1b). The Bank released a Country

2

Assistance Strategy (CAS) in May 2000 with the goal of establishing the foundations for improved human development and to ensure the continued development of a labor force that would be needed for the expected increase in the availability of oil revenues. The education sector strategy support program would also help ensure that the majority of the population in Chad had access to adequate primary education and literacy services through increased and improved community involvement. The proposed International Development Association (IDA) project of US$42.34 million (equivalent to SDR 32 million: SDR 14.5 million as a credit and SDR 17.5 million as a grant) was to contribute to this goal by strengthening community participation in education policy formulation and school management, and in piloting new types of literacy and non-formal education programs.

1.2 Original Project Development Objectives (PDO) and Key Indicators 1.2.1. There were discrepancies in the wording of the project development objectives (PDO). The original objective of the Project as stated in the Financing Agreement (FA) was to assist the Borrower in developing its policy framework, strategies and means for achievement of quality universal basic education and in implementing its strategy to improve access to and equity of education. 1.2.2. The original PDO as stated in the Project Appraisal Document (PAD) was to ensure that the framework for quality universal basic education was in place and ready for implementation. It placed an emphasis on developing an effective partnership between the State and the communities, creating national technical capacity for curricula and textbook development, and improving the quality and efficiency of basic education. At the end of the project, these objectives were designed to translate into stronger institutional and managerial capacity, increased enrollment rates, more equitable access and better education quality and efficiency. 1.2.3.The key indicators of the project as stated in the main text of the PAD differ from those found in Annex 1 of the PAD. Key indicators used by the Implementation Completion and Results Report (ICR) team are taken from Annex 1 because these were used during project implementation and include the following:

1. Community schools are entirely integrated through application of the policy and management provision described in: (a) the state-community partnership dated August 23, 2001; (b) the Project Implementation Manual; (c) the operational directives for management of CTs; and (d) the Program; 2. Curriculum and textbooks development capacity exists: (a) CP1 and CP2 bilingual curricula are developed; (b) textbooks are available for all grades at a ratio of one reading and one math textbook for each student whereas for Grades 3 through 6, science textbooks will also be available at a ratio of 1:2; and (c) the new primary bilingual curriculum is tested, published and ready for use; 3. A new literacy strategy is put in place through successful adaptation of the outsourcing approach; 4. The GER will climb from 72 percent in 1999/2000 to 87 percent in 2005/2006; 5. The ratio of girls to boys in the elementary increases from 63 percent in 1999/2000 to 77 percent in 2005/2006;

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6. The 6th grade survival rate will increase from 44 percent in 1999/2000 to 70 percent in 2005/2006; 7. Enrollment rates in 8 regions, namely: Lac, Borkou, Ennedi, Tibesti, Salamat, West Bata, East Bata, and Biltine reach 65% where it was equal to or less than 40% in 1999/2000.

1.3 Revised PDO and Key Indicators, and reasons/justification 1.3.1. The revised PDO was to: (i) improve access and equity for primary education, and (ii) increase capacity in strategic management and curriculum development. The revised key indicators were the following:

1. Primary level GER in targeted zones; 2. Ratio of girls to boys’ primary level in targeted zones; 3. Interim Education Sector Plan (IESP) adopted; 4. Curriculum for Grades 1 to 4 validated; 5. Direct project beneficiary (number) of which female (%) of community teachers (CTs) and students in primary public schools in targeted zones.

1.3.2. The December 2010 Level 1 restructuring was meant to address issues related to: (i) inconsistencies across documents (PAD, Legal Agreement, and Integrated Safeguards Data Sheet (ISDS)) on formulation of the PDO, key indicators, and difficulties in measuring indicators; (ii) poor project implementation performance due to a complex design as a result of the weak capacity of the country to manage and implement reforms in the education system; and (iii) limited/decreased relevance of some activities due to the evolving context and the need to align project activities with the changes in the school construction program that was being implemented under the President’s social infrastructure construction program, financed through the oil revenue budget.

1.4 Main Beneficiaries 1.4.1. The original project beneficiaries included: (i) the school-age population falling within the category of first and second cycle of basic education in particular the primary education age cohort (children between the ages of 3 and 12) and especially girls and those children living in disadvantaged geographic areas; (ii) teachers, particularly female teachers; and (iii) young children (ages three to five), illiterate adults, out-of-school youth, and APEs around school, and young women through its pilot programs in early childhood development (ECD), literacy and non-formal education. The targeted project beneficiaries were revised when the project was restructured to include the targeted groups of the original project with the exception of children ages three to five and out-of- school youth. The ECD sub-component was dropped because there was no provision of funds in the project to support implementation of activities.

1.5 Original Components

1.5.1. The project components as designed to achieve the PDOs are shown below:

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Component 1: Improving Access and Equity (US$50.42 million of which IDA financing: US$16.59 million): Its objective was to increase access to and equity of education. It sought to establish a sustainable strategy for the expansion of primary school enrollment by targeting community initiatives, girls' education, and participation of children living in under-served regions, including nomadic children. Component 1 had three sub-components which were: support to community initiatives; promotion of girls' schooling; and classroom, wells and latrine construction, maintenance and acquisition of school furniture and equipment. Component 2: Improving Quality and Efficiency (US$47.17 million of which IDA Financing: US$14.36 million): The objective of this component was to improve quality and the internal efficiency of primary and general secondary education by improving curricula for training and teaching in basic education, increasing the availability and quality of pedagogical and didactic materials, and introducing innovative programs (ECD, Interactive Radio Instruction (IRI)) to increase access to learning and overall learning achievement through schooling. Component 2 had the following eight sub-components: curriculum renovation for basic education; support for the development and management of textbooks, pedagogic and didactic materials; learning assessment and research; teacher training; ECD program; national languages reading development program (ELN); IRI Program; and school health and nutrition program. Component 3: Literacy and Non-formal Education (US$7.99 million of which IDA financing: US$3.73 million): This component aimed to pilot a new delivery mechanism of literacy programs to support implementation of literacy and practical skills training to out-of-school youth and adults in a sample of rural communities through private sector providers that would be recognized by decision-makers as appropriate for nationwide application. Activities under this component would be implemented through the following four sub-components: literacy courses for adults (ages 15 and older); non- formal education activities for unschooled and out-of school youth (ages 10 to 14 years old); reading and basic skills strengthening in the target villages with post literacy activities; and literacy program monitoring and evaluation (M&E). Component 4 Strengthening Planning, Management and Program Monitoring (US$13.54 million of which IDA financing: US$7.13 million): Its objective was to provide the institutional capacity strengthening necessary for successful program planning, activity management and M&E. The Component would strengthen specific units within the MEN, such as the Planning Directorate, to encourage dynamic cross- cutting interventions and strategic planning. It also included the establishment of a permanent institution to be the locus of a major curriculum renewal effort. This component had the following four sub-components: Establishment of the Centre National des Curricula (CNC); Strategic Institutional Capacity Building for the Programme d’Appui a la Reforme du Secteur de l’Education au Tchad (PARSET) - MEN/Communities; Strengthening of MEN Planning and Monitoring Capacities; and Strengthening of the Analytical Capacity, Policy Development, Monitoring and Coordination.

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1.6 Revised Components

1.6.1. The project was restructured in December 2010. Its design was simplified and the number of components was reduced to two and the sub-components were reorganized and regrouped in line with the new components. The number of sub-components was reduced from 19 to 9. Some of the original sub-components/activities that were having a marginal effect on the education sector were dropped because of their completion or irrelevance within the restructured project. Two new activities were proposed, on a pilot basis: (i) the provision of Information Technology (IT) laboratories, and library equipment to new secondary education schools built under the Government School Construction Program in Component 1 and (ii) a new scheme for direct provision of School Grants to public primary schools under Component 2. As of December 2010, the project had disbursed 75.4 percent of total funds (US$14.43 million as a credit and US$20.91 million as a grant) with US$11.2 million remaining undisbursed. Component 1: Improving access and equity to education (US$7.4 million): aimed to increase access to primary education and reduce gender and regional disparities by increasing the capacity of existing primary education schools and promoting enrollments for girls and children in vulnerable areas. The revised Component 1 was divided in 5 sub- components as follows: education infrastructure; support to secondary education; support to girls’ enrollment; teacher training; and support to school health and nutrition. Component 2: Enhancing institutional capacity (US$3.8 million): supported strengthening some key capacities at the Ministry and local levels to manage the education sector and the project. It includes the following four subcomponents: Support to local school committees; Support to the CNC; Strengthening of the Education Management Information System (EMIS) and project management; and developing capacity for sector analysis and policy.

1.7 Other significant changes 1.7.1. During the April 2007 mid-term review (MTR) of the project (two months prior to the initial closing date), the Bank and the Government discussed the possibility of a two- year extension of the project closing date and revising the results framework. It was decided that the extension would be undertaken in two stages: (i) one extension would be made from June 30, 2007 to October 31, 2007; and (ii) a second extension would be made from October 31, 2007 to June 30, 2009, because of low disbursement of funds (37.2% of the credit and 33% of the grant) and flaws identified in the Project’s design. Three years into project implementation, the PDO was rated moderately unsastifactory. This weak performance was due to: (i) huge procurement delays; (ii) frequent changes in ministers (having seven ministers in three years); and (iii) two suspensions of project disbursements by the Bank (from September-November 2005, and January-May 2006). In 2009, the former Minister of Education with two other ministers and several top government officials were incarcerated, after being accused of fictitious bids on textbooks to be purchased with the national budget. The MEN was without a minister for months, which weakened significantly the decision-making process. However, project funds were not involved in these allegations.

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1.7.2. A third extension of project closing date and reallocation of proceeds set the new closing date for December 31, 2010. By then about 74 percent of the funds had been disbursed. The third extension was granted to allow full completion of three main activities: (i) construction of CNC; (ii) setting-up of the EMIS; and (iii) finishing the construction of 190 wells. After an in-depth review of the portfolio, the Government requested a reallocation of funds between disbursement categories to support increased costs associated with the 190 wells, and reduce the resources allocated to goods and community grants. 1.7.3. On December 29, 2010, a Level 1 restructuring was approved by the Bank’s Board of Executive Directors. This restructuring included: (i) revisions to the PDO; (ii) revisions to the results framework and targets; (iii) revisions to components and sub- components; (iv) a reallocation of funds between disbursement categories, including adding a new sub-category (5.e) for the provision of School Grants to public primary schools, and increasing disbursement percentage of all IDA expenditures to 100%; and (v) extension of the closing date of the project from December 31, 2010 to June 30, 2012. By this new closing date, about 95 percent of the funds had been disbursed.

2. Key Factors Affecting Implementation and Outcomes

2.1 Project Preparation, Design and Quality at Entry Project Preparation: 2.1.2. Lessons learned: Lessons learned from previous IDA-supported projects were taken into consideration in the preparation of the project, in particular the need to promote effective communication to increase project ownership among stakeholders at all levels. In addition, the project took into consideration the need to promote capacity- building among stakeholders to increase the pace of school construction and to ensure community participation in school management. Finally, an important lesson from the Basic Education Project (IDA Cr. 2501-CD) that was taken into consideration was that the partnership between the State and the communities should be based on clear principles and well-defined responsibilities. 2.1.3. Choice of instrument: The preparation team initially considered a sector wide education operation (Sector Wide Approach - SWAP) to be supported by an Adaptable Program Loan (APL) instrument as it was considered a better fit given the sequence of reforms envisaged, but ultimately this idea was rejected. An APL would have been good at supporting a sequenced approach to reform in the context of the long-term development objectives of this project, but APLs also require strong policy development and implementation capacity, accompanied by good coordination among donors. These conditions did not exist in Chad. The Government's education program documents at the time provided a five-year perspective and had yet to include a longer term strategy or strategic plans for developing and strengthening post-primary education. Moreover, the Government was at an early stage of forging coordination between donors, and, as a result, several partners did not confirm their financial support to the sector in accordance with their stated intentions during the January 2000 Round Table. The preparation team decided, therefore, that a Specific Investment Loan (SIL) would be more appropriate in the Chad context, to provide focused support and to test pilot approaches for basic

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education, including providing specific support in addressing complex issues including community teacher training and community participation in school management. 2.1.4. Preparation team and participatory process: The project was prepared over several months which allowed for serious policy dialogue and the participation of key stakeholders. This process helped build ownership of the project. The project preparation team appears to have been strong, including the participation of several experts in various aspects of project design. Further, several reports and studies complemented their expertise and supported project design. Original Project Design 2.1.5. Link with Government and Bank’s priorities: The original Chad Education Sector Reform Project (ESRP) design fit into the first country Poverty Reduction Strategy Paper (PRSP, June 2003 – which was being developed during project preparation), the Education Sector Program (ESP, 2000) and the Bank CAS (May 2003) all of which supported strengthening foundations for improved human development and a better trained labor force in preparation for the availability of oil revenues. The results framework for the project was aligned with the ESP and its objectives. 2.1.6. Project complexity: The project design attempted to: (i) lay the foundations for long-term sector capacity-building; (ii) deal with short-term capacity weaknesses in education delivery by involving communities and other stakeholders, namely non- governmental organizations (NGOs); (iii) support a more equitable allocation of government resources; and to (iv) improve the relevance of curriculum and textbooks design and introduce innovative programs. These objectives were to be achieved through the Project’s four components and 19 sub-components. While relevant to the country’s education sector needs, this design proved to be too ambitious for a five-year SIL (2003- 2007). 2.1.7. Results framework: In addition, the project results framework had: (i) PDO indicators that in most cases measured nationwide progress rather than the specific impact of the project;2 (ii) too many intermediate indicators; and (iii) some indicators that did not pertain to project-funded activities. Moreover, there was no M&E system in place to support project implementation making project and component monitoring difficult. 2.1.8. Given the above, the ICR team considers the original design to have been overambitious, too complex, and weak in terms of its M&E. Quality at Entry 2.1.9. During the project review meeting on March 20, 2003, there was a consensus that the project design was solid and that it was technically and analytically sound. Recommendations were made for improving the design in some key areas. These included, among others, addressing the dual teachers’ recruitment mechanism and ways that the project could support the Government in managing CT training. It was also

2 Admittedly this was common practices for projects prepared in the early 2000s given the emphasis on the MDGs and on Education For All (EFA).

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recommended that the performance indicators be revised to strengthen their alignment with the MDGs. Most of these recommendations were adopted and many adopted within the M&E capacity-building activities. 2.1.10. Overall, Bank management felt that the project was ambitious but that this reflected high harmonization of the project with the Government’s education reform strategy as stated in the ESP and the PRSP. Project risks had also been identified and mitigation measures to deal with the risks were put in place. 2.1.11. Although the review meeting team considered the design appropriate, the ICR team considers their assessment as being overly optimistic in relation to the project design and the capacity of the Government to implement the project, in particular, with regards to the difficult issue of providing payment to the CTs. In fact, the Project’s MTR also found the design to have been overly ambitious and pointed to implementation problems related to limited capacity and flawed procurement processes. Restructuring Design 2.1.12. Although both the Government and the Bank agreed on the need to restructure the project during the MTR, it was only in December 2010 that the process was finalized. However, after the MTR and the first extension of the closing date, the project was monitoring progress based on revised indicators agreed upon during the MTR before formal approval. 2.1.13. The 2010 Level 1 restructuring attempted to address the project design problems, by: (i) restating the PDO; (ii) removing activities – and related output indicators- that were not initially funded or that were not critical for the project revised PDO (ECD activities, IRI program, non-formal and literacy activities); (iii) significantly changing the PDO indicators to provide better measures of progress, mostly by dropping some indicators, adding some new ones and replacing some targets3; (iv) reducing the overall scope of the project from four components with 19 sub-components to two components with nine sub-components; and (v) introducing pilots of new activities related to secondary education and school grants. These modifications were also aligned with the Government’s own refocused priorities on secondary education and the President social infrastructure program. 2.1.14. At restructuring 74% of the financing had been disbursed and activities for which targets were revised were all completed. The ICR team believes that restructuring the project was appropriate particularly in light of the infrastructure component, curriculum and textbook development, and project implementation progress prior to the restructuring. However, the Team also believes it could have been conducted at an earlier stage of project implementation and that some of the indicators could have been further narrowed.

3 The ratio of girls to boys in primary education and enrollment rates by department were kept as indicators but were modified to focus only on targeted areas. The curriculum indicator was also kept but with a new target.

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2.2 Implementation 2.2.1. The success of project implementation varied greatly across the two main implementation periods of the project: Phase one (from January 2004 to December 2010) and Phase two (the post-restructuring period, from January 2011 to June 2012). On the Government side, exogenous and endogenous factors complicated implementation. Among the endogenous factors, there were many changes in the Government and project team members which hampered the implementation of the project: ministers changed twelve times, including all of the associated policy and staff, seven of the changes occurring before the 2007 MTR, and there were two project coordinators (the first one was suspended on alleged corruption). Among the exogenous factors, Chad faced civil unrest and repeated rebels attacks on the country and the capital city, including: (i) a teachers’ strike in 2007 for five months which delayed implementation of activities, in particular, curriculum development and its pilot application; (ii) a rebel attack in 2004- 2005 which delayed community-based activities and construction outside N’Djamena; and (iii) two rebel attacks on N’Djamena in 2006 and 2008 which seriously affected the project. On the Bank side, the project had four task team leaders (TTLs) over the nine year project life without any key team member remaining throughout project preparation and implementation. In addition, the Project was suspended twice (from September- November 2005, and January-May 2006) because of, respectively, the dismissal of the first project coordinator and a suspension of all Bank operations in Chad due to political issues causing substantial delays in project implementation. 2.2.2. During Phase one, the project disbursed 74 percent of its total net allocation.4 However, the implementation record during this period is at best mixed. Difficulties in project implementation started early on with a delay in effectiveness (which only occurred nine months after the project was approved by the Bank’s Board of Executive Directors) and the project’s launch (a launch workshop was held only seven months after the project was declared effective, in July 2004, with the participation of representatives from the Ministry of Education (MEN), the Community Initiative Support Agency for Education Development (APICED), the National Federation of Parents' Associations (FENAPET), NGOs and communities). Notwithstanding the challenges associated with government ownership and the complexity of project design, some partial successes were achieved. In particular: (i) key project staff were hired; (ii) schools construction began with the completion of 400 equipped classrooms (during Phase one), 400 blocks of latrines, and 113 wells; (iii) a national framework was developed and the development of a new curriculum and new textbooks was launched; (iv) 3.7 million textbooks were procured and distributed (by end of project); (v) staff and more than 10,000 CTs were trained; (vi) bilingual education was piloted; (vii) communities sensitized and trained; (viii) school health and nutrition activities implemented satisfactorily; (ix) and EMIS activities were launched.

2.2.3. Six months after the launch workshop, rebels attacked the eastern part of the country, delaying implementation of activities with community involvement, and 18

4 Net allocation = SDR 32.0 million (Credit: SDR 14.5; Grant: SDR 17.5).

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months after the launch workshop, the project coordinator was revoked, which led the Bank to suspend the project from September to November 2005. Soon after resolution of the issue related to the project coordinator, all Bank operations were suspended in Chad (January-May 2006) and the Government’s political leadership was changing constantly. These ministerial changes posed serious implementation challenges for the Project and limited the administration’s capacity to set up a sound M&E system. Non-compliance with procurement plans caused serious delays as was pointed out during the MTR. 2.2.4. During the MTR, both the Bank and the Government recognized that the project design was complex and that indicators were poorly linked to project interventions and difficult to measure. A two-year extension and reallocation of funds between categories was agreed. However, ten months after the MTR, a rebel attack occurred in N’Djamena (February 2, 2008) during which many of the project’s assets were destroyed including offices. Due to security reasons, the Bank’s office was moved to Cameroon for seven months during which it was difficult to monitor project implementation. Having a functioning Project Implementation Unit (PIU) in place helped in continuing implementation of activities. By 2009, it was clear that the project needed more restructuring than just modifications to the results framework. Nevertheless, it took one year to complete the process. The ICR team believes that the project team could have undertaken project restructuring during or prior to the MTR since many of the problematic design issues were already known at that time. 2.2.5. Between May 2003 and May 2005, the Bank rated the PDO satisfactory with a disbursement rate of 12.14 percent. Despite a good disbursement rate of 72.4 percent between May 2005 and June 2009, the project’s implementation progress (IP) and PDO were downgraded to moderately unsatisfactory. The analysis of the results framework during that period is difficult because of the lack of data to assess project achievements relative to the project’s indicators. After the restructuring in 2010, the project was rated moderately satisfactory, which reflected progress made around that time and the need for an earlier project restructuring. 2.2.6. Notable gains were achieved during the last 18 months of project implementation. After the restructuring, 95 percent of project funds were disbursed and project activities were completed with the exception of laboratory equipment for secondary schools, school grants, and the adoption of the IESP. The new results framework was improved with a closer alignment with project activities and an improved ability to measure progress towards achievement of the PDO.

2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization

Design

2.3.1. The original results framework for the project was weak because: (i) only one PDO indicator out of seven was specific to the project intervention, the other six were designed to measure changes on a national scale; and (ii) some of the indicators were related to implementation of activities that were not funded by the Project, and therefore, the measured outcomes and could not be attributed to the project investment. Given the complexity of the original results framework, monitoring was difficult both for the Bank

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and the various implementation agencies. After the 2010 restructuring, the PDO indicators were revised to be more focused and more closely aligned with project components. The intermediate indicators were reduced from 19 to 14, linking them more explicitly to the project investments. However, the PDO and intermediate indicators would have benefited from being even more focused. For example, expecting girls’ completion rate to increase in three entire regions in a short period of time while the project component targeted only 264 schools seems unrealistic.

Implementation and Utilization of Monitoring and Evaluation: 2.3.2. Implementation of EMIS activities was moderately satisfactory because the unit monitored more indicators than required by the project. By project closing, the Ministere de l’Education Nationale's Planning Directorate (DAPRO), the central unit of the MEN in charge of collecting, analyzing, and disseminating education data was operational with key technical staff trained. However, timely production of data remains a concern; delays in data production and incomplete information are recurrent issues in the sector, and the reliability of data has been questionable. The size of the country (1.2 million km2) and the limited communication infrastructure were major impediments to developing an efficient education data monitoring system. The country’s education system would need to enhance its EMIS using new technologies; in that endeavor, the EMIS tools would need to reflect the diversity of stakeholders, such as migrant communities and students. 2.3.3. Implementation of the M&E indicators for project and sector purposes was problematic during project implementation, with a weak dissemination mechanism. The DAPRO was expected to produce national and regional statistics on an annual basis. However, the Education Statistical Yearbook was published with at least one year delay and had a limited dissemination, which reduced the use of information in policy dialogue and in informing policy decisions. Although the revised project design objectives included strengthening of the EMIS through capacity-building at all levels, the production of the Education Statistical Yearbook remained delayed for the duration of the project as a result of low capacity at decentralized levels. Consistency in indicators was further complicated as a result of the use of population projections based on the most recent census at the time (1999) which was used until 2009 when a new census was conducted. Project implementation reports were prepared regularly and supported by secondary sources of monitoring information such as independent technical and procedural audits, as well as information from the semestrial supervision missions conducted by the Bank task team in collaboration with the other development partners.

2.4 Safeguard and Fiduciary Compliance

Safeguards

2.4.1. The project was classified as a Category B based on the Bank’s Operational Policy due to the potential environmental and social impacts of its construction program. An Environmental Mitigation Plan (EMP) was prepared and approved by the time of project appraisal in 2003. The EMP included specific institutional arrangements to enable execution of all measures identified. During the 2010 restructuring, which included the construction of additional wells and latrines blocks, an Environmental and Social

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Management Framework (ESMF) was approved, and disclosed in the Infoshop. All constructions of classrooms, wells, and blocks of latrines were implemented in existing schools. There were no safeguard issues during implementation. Fiduciary Compliance 2.4.2. The project was executed by the MEN through one coordinating unit (The PIU) dealing with implementing agencies such as APICED and other entities of the MEN. The PIU was responsible for all fiduciary requirements. The arrangements were adequate to meet the needs for financial management (FM) under OP/BP 10.02. The PIU was compliant with the submission of the quarterly interim financial reports (IFRs) at the time of project closing, with some minor delays occurring during the implementation period (mainly due to the country size and communication issues in receiving information from the district education offices and the changes occurring within the accounting team). In addition, there were delays in the provision of counterpart funds. The 2010 Audit report was submitted on time and the auditor raised unqualified opinions. Following the last supervision mission conducted in May-June 2012, FM was judged to be satisfactory and related risks moderate. 2.5 Post-completion Operation/Next Phase 2.5.1. The Local Donor Group (LDG) is currently working with the Government of Chad to prepare a new Global Partnership for Education Fund operation (GPEF) with the United Nations Children’s Fund (UNICEF) as supervising entity. The new project is expected to be delivered in FY13 and will focus on improving the access and quality of education, through improving planning, monitoring and evaluation of basic education services in deprived districts. The project will provide: (i) district grants to support school construction, wells, and latrines, (ii) funding for teacher training, and curriculum scale-up, (iii) support for more strategic and regular capacity-building activities for districts, school management committees, and school directors, and (iv) funding for M&E. The Bank will also provide a SIL of US$ 15 million to support the country’s national IESP and complement the GPEF. Given the scope and nature of the planned activities under the GPEF and the new SIL, the lessons learned from the ESRP will be of particular relevance. The SIL operation will build on the experience of the ESRP and ensure sustainability of its achievements. This includes building on the ESRP-PIU which by the end of the Project had become fairly successful in delivering key outputs, and on community strengthening initiatives initiated by the ESRP (moving further towards school community based management). The new SIL will also make it possible to implement measures which could not be initiated by ESRP, such as the transfer of funds to the APEs for school grants.

3. Assessment of Outcomes

3.1 Relevance of Objectives, Design and Implementation Relevance of Objectives 3.1.1. Both the original and revised project objectives, which were derived from the 2000 ESP, continue to be relevant to the country needs as reflected in the 2008 Growth and Poverty and Growth Strategy Paper II (SNRP II, adopted in April 2008), and the May

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2010 Interim Strategy Note (ISN, 2010-2012). Chad’s SNRP II continues to give high priority to the education sector as one of the drivers of growth and poverty reduction. It also reconfirms the continued relevance of the program, while continuing to prioritize increasing access to education and training, focusing on bridging the gender and equity gap, and improving the quality and efficiency of education service delivery. The ISN supports the focus on targeted programs for the poor, while improving basic health and education services through the decentralized system. Therefore, the overall relevance of the project objectives is high. Relevance of Design 3.1.2. The relevance of Phase one project design is considered to be modest. The original project design turned out to be overambitious and complex, with some key sub- components not funded. This makes it difficult to assess progress toward the achievement of the PDOs. The relevance of the original design is therefore considered modest. 3.1.3. However, the relevance of the restructured design is considered as substantial. This is due to the fact that the: (i) PDO and PDO indicators were better aligned with project interventions, and (ii) components and sub-components that were not relevant were eliminated, thus reducing challenges associated with implementation capacity. These modifications helped reduce the complexity of the project, making it more realistic and easy to implement. Relevance of Implementation 3.1.4. The relevance of Phase one project implementation is considered to be modest. The justification for this rating is mainly based on the implementation issues prior to restructuring in relation to procurement and delays in activities implementation. However, there was a high disbursement rate (74 percent) during Phase one associated with successes in sound implementation of community grants, girls’ education activities, school health (de-worming and micronutrients) activities, bilingual education pilot, training of 10,000 CTs, as well as construction and equipment of 400 classrooms and latrines, and 113 wells. In addition, CNC technical staff was recruited and trained, studies that informed curriculum and textbooks development were completed, and the development of the EMIS was launched. 3.1.5. The relevance of Phase two (the phase following restructuring) implementation is considered to be substantial. The justification for this rating is based on the following: (i) completion of infrastructure and equipment activities (wells and latrines); (ii) completion of all planned studies; (iii) completion of curriculum and textbooks development activities which encompassed the initial target and included the entire six years of primary education; (iv) acquisition of micronutrients and de-worming; and (v) completion of girls’ education activities. The incomplete activities relate to laboratory equipment and libraries, transfer of funds to APEs for the school grants, and the adoption of the National Interim Education Plan which only happened recently, on August 24th, 2013 (i.e., just after the closing date of the project).

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3.2 Achievement of Project Development Objectives 3.2.1. Before restructuring, data related to the original PDO indicators were being collected for three out of seven indicators, and one partially, and this continued until project restructuring; one indicator was on the list but no data were consistently available (ratio girls to boys in primary, as in the ISR seq. 19). The August 2008 ISR introduced a revision in the outcome indicators of the project. The status of the PDO indicators at restructuring (December 2010) is presented in the results framework. 3.2.2. By restructuring, and after two extensions of the project closing date, three indicators were showing some progress (indicator 2 on curriculum and textbooks; indicator 3 on the literacy strategy; and indicator 4 on gross enrollment), with the last two having achieved or being very likely to have achieved their targets; one indicator (ratio girls to boys) had no available data, but according to information gathered some progress has been made (although below target); one indicator (indicator 6 on the survival rate) was partially monitored and showed deterioration; and two indicators (indicator 1 on community schools and indicator 7 on enrollment by department) were not being monitored by the ISR, the first one already achieved by project appraisal and the other showing heterogeneous progress with likely some deterioration in some departments. Based on the above, the achievement of the PDO prior to restructuring is rated moderately unsatisfactory. 3.2.3. After restructuring of the Project, the revised indicators that were being monitored and their values at project closing are indicated in the results framework. All of the PDO indicators, with the exception of one, were either adjusted or changed. The five new indicators monitored showed, at project closing, improvement, with two indicators achieved (one after the closing of the project), one largely achieved, and two only partially achieved. The section below provides more details by focusing on achievements after the Project’s 2010 restructuring. 3.2.4. Primary education indicators in targeted zones: the aim of the Project was to provide equitable access to primary education in four regions where the Project was focusing on providing classroom equipment, construction of latrines and wells, providing de-worming and micronutrients to students in deprived areas, improving the level of qualification of community teachers as to enable them to deliver the curriculum, and providing textbooks for students in these underserved areas. Progress in achieving the PDO was to be monitored using the GER, the ratio of girls to boys, and the number of direct beneficiaries from project interventions in the four main targeted regions.5 3.2.5. The overall GER, which increased from 72 percent in 2000 to 91 percent in 2011, was dropped at restructuring. In terms of regional enrollment, the target was partially met, with a substantial increase in GER observed in two out of the four targeted regions, exceeding the restructuring targets, namely Bata (76 percent), and Salamat (71 percent). The overall girls to boys education ratio, which experienced a significant increase of

5 It should also be highlighted that these two regions of the north have a very strong muslim culture/religion which is generally not favorable to girls’ education.

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about 12 percentage points between 2000 and 2011 but, at 0.75 remained below the 0.77 end of project target, was also dropped at restructuring replaced by the ratio in the four main targeted regions. In these regions, project targets were achieved, or practically achieved in Bata and BET (BET from a quite low level in 2008), while the ratios remained below target in Salamat and LAC (at a level similar than in 2008). In Salamat there is evidence that there was a steep increase in boys’ enrollment, while in LAC the weak enrollment performance penalized girls. 3.2.6. At restructuring an indicator on direct project’s beneficiaries was introduced. The number of direct beneficiaries from project interventions in the four targeted regions reached 166,300 students and 13,200 CTs, exceeding the restructuring targets. According to intermediate outcome indicators, about 11,180 community teachers have received level 1 training (basic) and 1,700 level 2 training (full certification). At 34 percent, the proportion of beneficiary female students was lower than expected, but at 25 percent the proportion of beneficiary women community teachers was higher than expected. 3.2.7. It is also important to highlight the positive performance of school nutrition and deworming activities (with over 90,000 students receiving deworming and micro- nutrients by project closing) and additional infrastructure construction (with 465 latrines and 255 wells by project closing) as positive contributors to the GER, gender ratios and project beneficiaries outcomes. 3.2.8. Management of the education sector: in addition to completion of the CNC building, and piloting curriculum and textbooks for Grades 1-4 of primary education, the project aimed to strengthen key capacities of the Ministry and local levels of the Ministry to manage the education sector through building a national capacity to plan, develop, and implement curriculum and related teaching materials, set-up a sound M&E system to support sector analysis and policy dialogue. Progress in achieving the PDO, after restructuring, was to be monitored through the development and adoption of the IESP, the development and validation of curriculum for Grades 1-4, and the number of adults enrolled in literacy programs. These were closely related to a set of intermediate outcome indicators referred to below when relevant. 3.2.9. Construction and equipment of the CNC as well as training of technical staff were completed. The CNC was strengthened to plan, develop, and implement curriculum for the first time since the country independence. The CNC technical staff was able to successfully develop and pilot the curriculum for all grades of primary education (from Grades 1 to 6, exceeding Grades 1 to 4 as planned). Along with the curriculum, textbooks and teaching materials were also developed and tested in 10 schools (instead of 30), and teachers were trained. Stakeholders interviewed during the field mission reported that having the CNC facilities and its staff trained had the greatest impact of all project activities with high potential for the support of continuous quality improvement activities. Although the CNC received training in learning assessment, it was not possible to develop a learning outcome system because of the delayed curriculum implementation, but the development of such as system is expected be supported under the new IDA project.

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3.2.10. The preparation process of the EISP took longer than expected because of a lack of local capacity and delay in the procurement of the international expert to support the local team, but the EISP was eventually adopted by the end of August 2012. The development of the plan was also made possible with support from the DAPRO. This support was used to set up a data collection and analysis system to allow the production of improved information on the education system. However, the collection of data was delayed mainly due to limited communication capacity and the vast size of the country which have impacted the timely availability of reliable information, complicating the M&E of the project and contributing to the delay in the preparation of the plan. Overall, the MEN EMIS staff is now able to report on project specific data, including key performance indicators, which is a major step forward. Recent delays were, however, recently observed in the publication of education data making continuous support of the EMIS a priority for the new IDA project. Finally, a new literacy strategy was developed and used to cover 20,000 adults (of which 70% women) from 2004-2009, so this target was already achieved by restructuring. 3.2.11. Although some indicators are still below target (e.g., girl to boy ratio in primary education and the enrollment rate in some targeted areas) and some management-related activities have not been fully completed, many positive achievements in other targeted areas and in the management of the education system have been observed so that the achievement of the PDO after restructuring is rated moderately satisfactory.

3.3 Efficiency 3.3.1. No Net Present Value (NPV) was calculated for the project nor was an economic rate of return defined for the investment. An efficiency analysis was conducted based on the assumption that investments in education are generally justified because they increase the productivity of labor and are associated with beneficial social outcomes. 3.3.2. To assess the cost-effectiveness of the investments undertaken under the project, the analysis took into account four main elements: (i) the internal efficiency of the education system; (ii) teachers’ salaries; (iii) the unit costs of classroom construction; and (iv) the purchase and distribution of textbooks and some additional elements affecting the efficiency of implementation. (More details are provided in Annex 3). 3.3.3. The Project aimed to improve internal efficiency through an aggressive policy to reduce repetition and drop-out, improve transitions among grades, training and integration of CTs, and by the State taking over the entire cost of community schools. While in 2010 the number of students obtaining their end of primary education certificate rose to 308 (280 in the case of girls) and the repetition rate declined marginally, overall, between 2000 and 2010 primary education internal efficiency deteriorated slightly instead of improving (See Annex 3 for more details).

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Table 1: Project Internal efficiency Indicators 2000 2005 2010 Drop -out Rate 10.8 17.4 11 Repetition rate 27 19.6 24 Primary Survival Rate 44 - 36 to Grade 6

3.3.4. In part this disappointing result is likely to be the outcome of too few additional CTs trained at an advanced level (only 1,700 CTs were certified for level 2) – this target could have been more ambitious. Over the life time of the project, CTs subsidies paid by the Government increased from an average of CFA 240,000/year in 2000 to CFA 450,000 starting in 2005 (CFA 300,000 for CTs level 1, and CFA 540,000 for CTs level 2). However, instead of decreasing, the number of CTs (particularly level 1 CTs) increased substantially from 8,600 in 2000 to 18,300 in 2010 (74 percent of all primary teachers), more than the high scenario increase of CTs in the system set in 2020 (56 percent). Additionally, out of the 21,100 CTs in primary education in 2010, only 63 percent have received training and fewer than 2,000 CTs are certified. This evidence likely suggests a lack of “value for money” as far as teacher salaries were concerned. Upgrading the status and qualifications of the CTs was expected to have a favorable impact on internal efficiency and learning outcomes under the project, but the increased teacher subsidies were associated only partially with these desired effects. 3.3.5. The Project supported the construction of 400 classrooms, 265 latrines, and 255 wells. In addition, unit costs for school construction, latrines, and wells were estimated in comparison with other similar countries. Implementation revealed that unit costs were underestimated resulting in the construction of fewer classrooms than originally planned. Delayed implementation of activities exacerbated by procurement delays and the long approval process for contracts played a significant role in increasing unit costs of goods and services. In addition, when the presidential program launched schools construction, the unit costs were far higher than those of the project, thus creating an inflation of construction cost. After restructuring, unit costs were unchanged until project closing. Underestimated unit costs impacted negatively on the efficiency of the project.

Table 2: Project Construction Unit Costs Unit Cost Classroom construction Bloc of latrines Wells At appraisal 5,500,000 2,500,000 4,500,000 Real cost 7,000,000 3,500,000 9,000,000 % increase 127.2% 140% 200%

3.3.6. Efficient implementation of the project was also constrained by in the difficulties of developing an efficient education data monitoring system to allow for regular and reliable measuring of the project’s outcomes and outputs and by the significant delays in

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the procurement of new textbooks. Overall, therefore, project efficiency is considered to be low. 3.3.7. Nonetheless, the Project used the textbook funds to purchase 3.1 million textbooks in French and Arabic, and editing teachers’ guides, which is above the restructuring target and shows innovation and efficiency in the use of funds (adapting existing textbooks instead of buying new ones). This justifies a slight upgrading of the project efficiency rating after restructuring to modest.

3.4 Justification of Overall Outcome Rating 3.4.1. The overall outcome rating of the Chad ESRP is moderately unsatisfactory as reflected by the two phases of project implementation. Phase one shows the overall outcome to be moderately unsatisfactory: the project design was complex and beyond the national implementation capacity, which makes implementation inconsistent (project relevance overall modest), efficiency was difficult to measure and low according to the efficiency analysis, and the achievement of the PDO prior to restructuring is rated moderately unsatisfactory. Phase two shows the overall outcome to be moderately satisfactory. This Phase included a more relevant project design with a more focused results framework (project relevance substantial), and better results, with a PDO assessed to be moderately satisfactory. (Efficiency gains remain modest). The overall project outcome rating is considered to be moderately unsatisfactory because project restructuring did not take place until 74 percent of funds were disbursed. 3.4.2. The tables below summarize the overall rating of the project and explanation of the weighting procedure. Annex 2 gives more details on activities implementation and project achievements.

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Original Project – Phase 1 (December 2003-December 2010): Disbursement at 74 percent (Credit and Grant) Project Relevance Achievement of PDO Efficiency Overall Rating Modest Moderately Unsatisfactory Low Moderately Unsatisfactory Project Restructuring - Phase 2 (January 2011-June 2012): Disbursement at 20 percent of total funds Project Relevance Achievement of PDO Efficiency Overall Rating Substantial Moderately Satisfactory Modest Moderately Satisfactory Overall Project Ratings – 95 percent disbursement of total funds (Credit and Grant) Project Relevance Achievement of PDO Efficiency Overall Rating Modest Moderately Unsatisfactory Low Moderately Unsatisfactory

Against Against Overall Original PDO Revised PDO 1 Rating Moderately Moderately - Unsatisfactory Satisfactory 2 Rating Value 3 4 3 Weight (% disbursed 74% 20% 94% before/after PDO change) 4 Weighted Value (2 X 3) 2.22 0.8 3.02 5 Final Rating (rounded) Moderately Unsatisfactory

3.5 Overarching Themes, Other Outcomes and Impacts (a) Poverty Impacts, Gender Aspects, and Social Development 3.5.1. Data on poverty in Chad is lacking, with the main source of data being two household surveys undertaken in 1995/1996 and 2003/2004. With around 55 percent of the population living below the poverty line and about 36 percent of the population living in extreme poverty, poverty in Chad is primarily concentrated in rural areas, where 87 percent of the country’s poor live. The Chad Education Policy Reform Project targeted communities and children living in disadvantaged geographic areas where substantial funds were channeled to support community schools and adult literacy programs, which traditionally receive little support from the State. The project focused on geographic equity, with the aim of generating greater equality in terms of educational opportunities among provinces. It also focused on gender equity to bridge the gap between boys and girls. As the provinces of LAC, Bourkou, Ennedi, Tibesti, Salamat, Batha East, Batha West and Biltine had the lowest ratio of girls to boys, they were targeted to receive interventions to stimulate girls' demand for education. These underserved provinces

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received the largest share of resources through construction of new classrooms, wells, and latrines blocks. Under the project, progress has been made in some of the targeted rural areas. The GER however appears to have decreased in Bourkou and Ennedi; this could be due to the use of different population projections given the new census in 2009, and improvements in data reliability. The girl-to-boy ratios have increased in most targeted areas but have remained however below target in LAC and Salamat. (b) Institutional Change/Strengthening 3.5.2. Three key institutional changes were pursued under the project: (i) creation of the CNC to develop national capacity in curriculum planning and implementation; (ii) adoption of a strategy to support community initiatives; and (iii) develop a comprehensive strategy to train and support CTs. For the first time since the country’s independence in 1960, a CNC is in place with staff trained in all relevant aspects of curriculum. Under the project, the CNC was built and equipped, and has developed and conducted a pilot using of the country new curriculum and textbooks. In addition, a national strategy on community initiatives has been adopted and has allowed the development of an institutional framework for the state-local community relationship using a national civil society organization (FENAPET) as its chief agent. FENAPET supported by the APICED for channeling resources to the APEs was a deliberate choice based on a management capacity analysis of MEN structures and is intended to speed up payments and improve transparency. If FENAPET proved to be relevant in implementing the national framework, in particular in supporting communities for school construction and management, the work of APICED remained questionable in terms of promoting transparency. Finally, the Government developed a strategy and a curriculum for training CTs and providing funds to support communities in paying their stipends. Between 2005 and 2011, the Government transferred CFA 20 billion for the payment of CTs. CTs were strengthened although their overall qualification level is still an issue. (c) Other Unintended Outcomes and Impacts (positive or negative) 3.5.3. Anecdotal evidence suggests that a positive unintended outcome of the project’s focus on underserved communities in the eight targeted regions is that schools are better equipped to accommodate girls’ education. Schools with wells attract more students and their parents with the opportunity to have clean water. In addition, parents, teachers, and students interviewed reported that without the specific support to girls provided by the project, many of the girls would not have achieved the level of schooling they have achieved. This provides favorable expectations for the future given the Government’s continuing efforts to support community schools, girls’ education, and APEs.

3.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops Not Applicable.

4. Assessment of Risk to Development Outcome Rating: substantial 4.1 The risks identified during project preparation were generally appropriate: three were rated substantial, two modest, and two negligible, thus overall risks was rated moderate.

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However, two risks, in retrospect, could have been rated differently. The modest rating for political stability and good governance, and the substantial rating for procurement capacity should have been rated both as high. The country’s recurrent political instability and the forthcoming oil revenues should have led to greater concerns. Given the low capacity and the limited good governance, procurement capacity and processes should have been assessed more critically, and given a rating of high. In addition, inflation due to oil revenues negatively impacted the project costing, which was not assessed as a risk. 4.2. Despite improvement in several aspects of the sector management at project closing (DAPRO is producing sector data to allow better informed policy decision, CNC is fully operational with trained staffs, FENAPET is in place and providing the needed support for community development), there are still risks associated with governance and political instability. Institutional capacity-building which occurred during project implementation is likely to reduce the impact of risks on the overall sustainability of gains.

5. Assessment of Bank and Borrower Performance

5.1 Bank Performance (a) Bank Performance in Ensuring Quality at Entry Rating: Moderately Unsatisfactory 5.1.1. The project was relevant to the education needs of the country, and was prepared in a timely and participatory manner. Additionally, it was innovative in directly attacking community involvement in the management of education, setting up a system to transfer resources to schools for CTs payment, and supporting the development of national capacity in curriculum development. The project was also well aligned with the ESP, PRSP, and CAS and preparatory studies were undertaken to support project design. However, and importantly, the initial Project design was overly ambitious and would have benefited from a results framework that was more closely aligned with the PDO and targeted interventions. Additionally, design deficiencies and the lack of funding of some key sub-components led to significant implementation delays and monitoring problems which led to a restructuring of the project in 2010. During that restructuring, the Bank addressed the overly ambitious nature of the Project by reducing the scope of the interventions and revising the complex results framework. However, restructuring happened too late in the project implementation and the lack of a robust M&E scheme for sector monitoring – a design issue – remained a problem throughout project implementation. (b) Quality of Supervision Rating: Moderately Satisfactory 5.1.2. The Bank conducted over 20 supervision missions during project implementation and the aide-memoires and back to office reports on the bottlenecks faced by project implementation, including procurement issues and delays in key activities were detailed. The supervision team composition was also generally comprehensive, including the required technical and fiduciary specialists. The closing date was extended two times and

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a reallocation was made to transfer more funds to school infrastructure (classrooms, wells, and latrines) in order to ensure an improved learning environment for children. 5.1.3. In the 2007 MTR the Bank had already recognized that there was a need to restructure the Project, narrow the scope of the interventions and link more closely the results framework with project investments. The restructuring was greatly facilitated by the relocation of the project TTL on the ground in 2009 and 2010. After restructuring, project implementation support became even more proactive which helped reverse the PDO achievement rating to moderately satisfactory. Monthly audio-video meetings took place between the project team and the MEN including the PIU team. 5.1.4. At the same time, the Project had four TTLs and no key team member remained throughout project preparation and implementation. Additionally, the Bank team could have been more proactive in conducting project restructuring which was agreed on during the 2007 MTR (although political economy issues, with the rebel invasion in 2008, provide partial justification for this delay). Before the restructuring and after the MTR, the supervision team monitored a results framework which had not been formally agreed (and was only formally revised during restructuring), making project monitoring cumbersome. Finally, the ICR team believes that project implementation may have suffered from limited direct supervision on the ground (field trips to targeted regions), admittedly made difficult by factors out of the control of the supervision team (security issues). On the other hand, the relocation of the project TTL in Chad was greatly instrumental to the successful restructuring of the project. Overall, on the basis of the several positive but also some of the less positive elements highlighted above, the quality of supervision on the Bank side is considered to be moderately satisfactory. (c) Justification of Rating for Overall Bank Performance Rating: Moderately Unsatisfactory 5.1.5. The Bank designed an original and relevant operation with a participatory approach. It brought in appropriate technical expertise as needed in areas where it had a comparative advantage. However, the risk assessment during appraisal underestimated the country’s recurrent political instability and its possible impact on project implementation. In addition, the absence of a long-term government strategy to address key issues in relation to the achievement of MDGs limited the Government’s engagement in putting in place an evolving process that could lead to more sustainable education sector reform. Furthermore, frequent changes in key staff, an overly ambitious project design, inadequate results framework, and delays in restructuring the project negatively impacted the achievement of the PDO.

5.2 Borrower Performance (a) Government Performance Rating: Moderately Unsatisfactory 5.2.1. The Government was actively involved in the preparation of the project, including the support to community participation in education. Its 2000 ESP also provided a strategic framework for its education sector.

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5.2.2. However, implementation of the government strategy and the project activities were affected by instability in the country. Beyond the effects of many exogenous shocks, effective project implementation was also made more difficult as a result of the frequent changes in ministers, including all the associated policy and staff. In addition, long and complicated national procurement processes and flawed procurement decisions delayed project implementation substantially. The Government was also not able to timely provide the agreed counterpart funding for the project. The changes and the delayed national contribution to the project budget brought into question the Government’s commitment to develop and implement a comprehensive strategy aimed at providing social services to the needed communities. 5.2.3. While the vast majority of the project’s activities were completed by project closing, indicating the Government’s renewed commitment, overall performance of the Government is considered to be moderately unsatisfactory. (b) Implementing Agency or Agencies Performance Rating: Moderately Satisfactory 5.2.4. An effort was made to keep the PIU adequately staffed in spite of the many internal and external shocks and the unit remained committed to the project’s objectives until the Project’s end and were, therefore, highly instrumental in project achievements by project closing. The PIU was also duly involved in the preparation of the supervision missions where it would always participate actively. 5.2.5. However, the PIU experienced shifts in staff including, in particular, a change in the project coordinator as the project’s first coordinator was revoked on the basis of alleged corruption. And the project implementation suffered from several capacity constraints at the PIU level, including in undertaking procurement processes and M&E at all levels. The PIU complied with the requirements to submit both IFRs and FMRs, and all project audits were certified. This mixed record calls for a moderately satisfactory rating. (c) Justification of Rating for Overall Borrower Performance Rating: Moderately Unsatisfactory 5.2.6. Based on the Government’s performance and its impact on implementation, as well as on capacity constraints and staff turnover in the implementing agency, the overall performance of the Borrower is rated moderately unsatisfactory.

6. Lessons Learned Lesson 1: Project design needs to be made consistent with implementation capacity constraints and national context. A complex operation takes time to prepare, own and implement and cannot be undertaken in an unsecure context particularly when there is limited institutional capacity. The Chad ESRP proved to be challenging to design and implement, thus limiting the scope of the proposed activities. Soon after effectiveness, the country experienced insecurity and instability slowing down implementation of activities, and limiting donors’ contributions to fill the funding gap estimated at appraisal. A project design with fewer and more focused components would have been more

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appropriate to the volatile insecure country context and the limited implementation capacity in Chad. Lesson 2: The project results framework should be explicitly linked to project interventions and funding. The Chad ESRP original results framework was weak with only one PDO indicator out of seven specific to the project intervention (the other six were meant to measure increases on a national scale) and the intermediate outcome indicators included some measures of activities that were not funded by the Project. Overall, this resulted in the adoption of indicators which were not well-aligned with project components, hindering the Bank and the Government’s ability to effectively measure progress of the Project. Lesson 3: Building and sustaining national capacity requires an efficient and timely capacity building plan and a close monitoring of its implementation. Improving capacity requires training on a continuous basis and a strong TA sub-component. The ESRP provided sound TA and training to the CNC technical staff which was supported over an extended period of time. This increased the impact of the training and has had a lasting influence on improved capacity. The challenge being faced now is limiting staff turn-over and renewal of staff contracts to ensure continuity and sustainability. Lesson 4: Project design flaws need to be addressed at an early stage through a restructuring to enhance project implementation and attainment of PDOs. Although design problems were identified earlier and discussed extensively with the Government, it was only two years after the MTR that restructuring was finalized when 74 percent of the funds were already disbursed. Project restructuring might have been undertaken earlier which would have provided a greater opportunity to achieve better outcomes. Lesson 5: Recurrent changes in key stakeholders during project implementation jeopardize implementation of activities and delays achievement of project outcomes. The project experienced many changes from both sides in terms of project management; from beginning to project closing, twelve ministers and two project coordinators monitored the project and there were four TTLs. All of the project key staff changed during the project’s life time. These frequent changes had a negative impact on policy dialogue and implementation. It is crucial to ensure continuity of key technical staff to manage a project. Lesson 6: SILs have limitations in supporting policy reforms. Given the lack of long- term vision, capacity for policy development and implementation, and coordination among donors, other financing instruments were not selected to implement the Chad ESRP. There was a need for policy initiatives that could have supported implementation of various reform efforts, such as further support to community actions and the upgrading of CTs. These measures and related activities, however, were dropped because of the nature of the financing instrument. As a result progress on the policy side remained limited confirming some of the limitations of SILs to support reforms to policy.

7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners (a) Borrower/implementing agencies: See Annex 7. (b) Co-financiers: Not Applicable

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(c) Other partners and stakeholders: No comments provided.

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Annex 1. Project Costs and Financing

(a) Project Cost by Component (in USD Million equivalent)6

Appraisal Actual/Latest Estimate Estimate (USD (USD Percentage of Components millions) millions) Appraisal7 Improving Access and Equity 16.58 20.9 126.06% Improving Quality and Efficiency8 14.36 11.48 79.94% Literacy and non-formal Education9 3.73 1.73 46.38% Strengthening, Planning, Management and Program Monitoring10 7.13 8.45 118.51% Front-end fee PPF 0.54 0.54 100.00% Total Baseline Cost 42.34 43.1 101.79% Physical Contingencies 0 0 Price Contingencies 0 0 Unallocated 0 0 Total Project Costs 42.34 43.1 101.79% Front-end fee IBRD 0 0 Total Financing Required 42.34

6 The table would need to be updated based on figures after the grace period (end of October 2012). The actual figures are based on disbursement to date and signed contracts that are expected to be completed before project closing and to be paid before the end of the grace period. 7 The percentages are higher because of exchange rate fluctuation (between $ and SDR). No overrun costs were incurred. 8 At restructuring this component was dropped and continued activities were merged into new component 2 (original component 4). 9 At restructuring this component was dropped. 10 Original Component 4 became Component 2 after restructuring; costs include costs of original component 4 and costs of component 2 after restructuring.

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(b) Financing

Appraisal Actual/Latest Estimate Estimate Type of Co- Percentage Source of Funds financing of Appraisal (USD (USD millions) millions) African Development Bank 5.46 NA11 Borrower 20.88 75.612 362.07% Local Communities 4.15 10.2513 246.99% EC: European Commission 1.74 NA FRANCE: French Agency for 12.97 NA Development GERMANY: German Technical 2.9 2.9 100.00% Assistance Corporation (GTZ) International Development 19.13 17.34 90.64% Association (IDA) IDA GRANT FOR POOREST 23.21 22.68 97.72% COUNTRY Islamic Development Bank 13.8 NA UN Children's Fund 3.28 NA Total 107.53

11 Not available.

12 Payment of CTs stipends and the President’s infrastructure program increased government’s contribution to the program. However, counterpart funds were not paid on time to directly contribute to the project activities implementation.

13 The number of CTs and community schools continued to increase, thus increasing communities’ contribution to education.

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Annex 2. Outputs by Component Component 1: Improving Access and Equity (US$50.42 million of which IDA Grant: US $16.59 million), which was revised to Component 1: Improving access and equity to education (US$7.4 million) The objective of this component was to increase the access to and equity of education. This was to be achieved through the following: (i) establishment of a sustainable strategy for the expansion of primary school enrollment by targeting community initiatives, girls' education, and participation of children living in under-served regions, including nomadic children; and (ii) improvements in the teaching and learning environment of community schools, through the provision of cost-effective, furnished classrooms to create favorable learning conditions. By the 2007 MTR the Bank and the Government realized that this component was overly ambitious and that the implementation process was more challenging than originally anticipated, and they agreed on revision of both activities and targets. Moreover, project activities were suspended twice from September to November 2005 due to the suspension of the project coordinator, and from January to May 2006 due to Bank operations suspension in the country. In addition, the country was experiencing difficulties due to the civil war which limited implementation of activities in some regions of the country affected by the conflict. The table below presents component 1 and revisions that were made.

Original Component 1: Improving Revised Component 1: Access and Equity (US$50.42 Improving access and equity to Comments million of which IDA Grant: US education (US$7.4 million) $16.59 million) Sub-component 1.1: Support to The original sub-

community initiatives component was dropped. Sub-component 1.2: Promotion of Sub-component 1.3: Support Continued Girls' Schooling girls’ enrollment Sub-component 1.3: Classroom, wells and latrine construction, maintenance Sub-component 1.1: Education Sub-components 1.1 and and acquisition of school furniture and infrastructures 1.3 were merged. equipment Sub-component 1.2: Support to New activities to be

secondary education piloted.

The revised Component 1 objectives focused on increasing access to primary education and to reduce gender and regional disparities by increasing the capacity of existing primary education schools and promoting enrollment of girls and children in vulnerable areas. Implementation of planned activities would: (a) increase Grade 1 (CP1) admission rate from 82% in 1999/2000 to 90% in 2005/2006 (for girls from 70% to 85%); (b) improve survival rate in Grade 6 from 35% in 1999/00 to 65% in 2005/06 for girls and from 53% to 75% for boys.

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The overall performance of this component is rated moderately satisfactory: Before restructuring, implementation of activities under Component 1 was moderately unsatisfactory and moderately satisfactory after restructuring. Although admission rate in Grade a reached 120% in 2010 (108 % for girls), primary survival rate improved only marginally over time to reach 36% in 2010-2011 (while it was 35% in 2000) with a rate of 33% for girls. The following activities were planned: Original Sub-component 1.1 (Total US$ 18.11 million, IDA Grant US$ 3.40 million)- Support to community initiatives: this sub-component was part of the initial project design and was not supported under the restructured project. Its activities consisted of: (a) Establishment of a national agency for subsidizing community initiatives (APICED): The agency was set-up since 2002 (Law No 23/PR/2002 of December 21, 2002), and is fully operational. It served to channel subsidies paid by the government to community teachers directly using NGOs to channel funds from the center to communities. It was agreed to sign contracts between APICED and communities through which funds will be transferred. However, the Government decided that a contract between the community and teachers would be sufficient to pay the subsidies using eight NGOs for transferring funds and paying directly CTs. This mechanism was used until 2009, and later funds were being paid by the Government through APICED with support of a commission composed of representatives from the Ministry of Education, the Ministry of Finance, teachers unions, and APEs. From 2004 and 2011, CFA 30 billion were transferred through APICED for the payment of CTs. For 2012, APICED is channeling subsidies to 13,630 CTs.

(b) Sensitization campaigns: it was planned to develop information campaigns to reach the country's 6,500 APEs by 2005 (up from 4,000 in 2002) on how the Project works and how they can benefit from planned activities. The FENAPET (Federation Nationale des Parents d’élèves du Tchad) with support from the project implemented all planned activities between 2004 and 2010 using different media and by conducting workshops around the country. At project restructuring, FENAPET had implemented successfully all planned activities. In total, 6,200 APEs around the country were sensitized. FENAPET also provided support to 74 communities to build 74 classrooms in existing schools.

(c) APE training: It was envisaged that during the first four years of Phase one approximately 3,000 APEs would have signed an agreement with the APICED to receive training in organization, management, fundraising, project development, and networking in order to better support primary schools and CTs in self-assessment. At the time of restructuring date, 3,420 APEs had been trained by GIZ, and a network of 1,250 APEs was established and is functional. Revised Sub-component 1.2: Support to secondary education through the establishment of computer centers, sciences laboratories and libraries in three targeted new public senior secondary schools recently built by the Government. This activity has been partially achieved. Studies for computer centers management, laboratories, and libraries have been completed, but laboratory equipment and books have not been acquired.

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Original Sub-component 1.2 (Total US$ 1.76 million, IDA Grant US$ 1.62 million): Promotion of Girls' Schooling, which was revised to Sub-component 1.3: Support girls’ enrollment. Initial planned activities included: (a) Sensitization campaigns (TA and training). Activities under this sub-component included reaching at least 1,200 new communities through community level meetings as well as radio and TV broadcasts in French, Arabic and other local languages. It was expected that implementation of activities would increase girls’ Grade 1 GER from 69.5% to 90% by 2005. The planned activities were satisfactory implemented with GIZ support. During project lifetime, girls’ GER in Grade 1 of primary increased from 91% in 2004 to 108.0 in 2011, showing good results.

(b) Increasing the number of female teachers in rural areas (TA): Under this sub- component, a study was envisaged to: (a) estimate the number of women and girls that can be trained as teachers; and (b) analyze the conditions that will allow the training and the employment of the potential female teachers. Following the study, a hiring and training plan would be developed in the second year of the Project and implemented in the third and fourth years. Although the study was not conducted, results from the education sector data show that the number of female teachers is very low (15.4% of total number of teachers in 2010).

(c) Setting up a tutoring program (grant scheme). The tutoring initiative, focusing on children at risk of failing, was planned in its first year to be implemented in 50 primary schools in grades CE2, CMI and CM2 where repetition and dropouts are high. The tutoring was to be extended to 50 new schools every year, totaling 200 schools and 12,000 students over the first four years of the Project. The focus would be on math and language, and schools with higher rates of repetition could be specifically targeted with tutoring throughout the school year. A high-achieving student (student tutor) would assist a low-achieving student during specifically designated moments in the weekly schedule. The teacher was to serve as facilitator and community members were to help in the supervision and monitoring. The successful implementation of the tutoring required close collaboration between the school, the parents and the students. Teachers, APEs, including female members as well as student tutors, were to all receive training. A tutoring program was developed and implemented in 264 schools totaling more than 8,367 female students throughout the project. Despite successful implementation activities, it has limited impact on girls’ repetition and drop-out.

(d) Involving and supporting mothers in APEs (Grant scheme). Through the GIZ contract, APEs were reinforced with female members to support the tutoring program. Members of the APEs benefited from literacy courses and training in the management of activities aiming to support their schools.

(e) Setting up Girls' Secondary Education Incentive Scheme (grant scheme). An incentive system for girls was developed and has been operational since 2005 covering all regions. The system targets females interested in science, and provides an annual prize to 60 girls who successfully pass the BEPC or Baccalaureate with high marks in science.

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Project support provided prizes to 3,226 girls (26 at Baccalaureate level, 1,983 at the end of lower secondary, and 1,217 at the end of primary).

(f) Developing and integrating gender sensitization modules in pre- and in-service teacher-training modules (TA and training). Since 2010, all teachers training programs have gender modules integrated in their curricula. Due to project achievements at the MTR, it was agreed to continue these activities through a revised sub-component which would continue activities in 264 public primary schools in targeted zones, including payment of teachers' overtime for girls' tutoring and for Girls' Education Grants. At project completion all activities had been fully implemented. Original Sub-component 1.3 (Total US$ 30.55 million, IDA Grant US$ 11.57 million): Classroom, wells and latrine construction, maintenance and acquisition of school furniture and equipment, which was Revised to Sub-component 1.1: Education infrastructure. Initial planned activities included the following: 1,000 classrooms, 1,000 latrine blocks, and 200 wells to be built in existing schools. At restructuring in 2010, the project had achieved construction and equipment of 400 classrooms, 400 latrines blocks, and 113 wells. Based on the achievements under this sub-component, it was agreed to drop construction of the remaining classrooms by setting 400 classrooms as the new target to be achieved under project financing, and have additional 65 blocks of latrines to be built through transfer to communities, and 112 wells to be built in existing schools totaling 255 wells, as well as equipment for 148 classrooms in targeted zones and more than 500 classrooms around the country. As of project closing, the following was achieved: 400 new primary classrooms, 465 blocks of latrines, 255 wells, equipment of three secondary schools, and equipment of 400 classrooms. Original Component 2- Improving Quality and Efficiency (US$47.17 million of which IDA Financing US$ 14.36 million): The objective of this component was to improve the quality and the internal efficiency of primary and general secondary education by improving curricula for training and teaching in basic education, the availability and quality of pedagogical and didactic materials, and introducing innovative programs to increase access to learning and overall learning achievement through schooling. Additionally, the objective of the new programs was to test, evaluate and expand successful initiatives in ECD, language/reading development, distance education/IRI, and school health and nutrition education. At MTR in 2007, the Government and the Bank agreed on restructuring this component for simplification of the overall project design and for more realistic indicators and targets. The component was dropped because many of the activities could not be implemented (i.e. ECD, IRI) due to funds unavailability. Activities that were under implementation were either incorporated into new simplified sub-components (i.e., curriculum design), or stopped and the achievements as of project restructuring considered as the end of project targets. The table which follows presents the original and restructured sub-components.

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Original Component 2: Improving Quality and Efficiency (US$47.17 Restructured, dropped Comments million of which IDA Financing or merged US$ 14.36 million) Continued into new Sub-component 2.1: Curriculum Component 2: Enhancing Renovation for Basic Education institutional capacity Sub-component 2.2: Support for the development and management of Dropped textbooks, pedagogic and didactic materials Sub-component 2.3: Learning Dropped assessment and research Continued into Sub-component 1.4: Component 1: Improving Sub-component 2.4: Teacher Training Teachers training access and equity to education Sub-component 2.5: ECD Program Dropped, not funded Sub-component 2.6: National Languages Reading Development Dropped Program (ELN) Sub-component 2.7: IRI Program Dropped, not funded Sub-component 1.5: Sub-component 2.8: School Health and Continued into Component Support to school health Nutrition Program 1. and nutrition.

The overall performance of this component is moderately unsatisfactory. Prior to restructuring, implementation of activities under Component 2 was unsatisfactory and the component was dropped at restructuring. However, activities related to curriculum testing and learning assessment were incorporated to the revised Component 2, and the curriculum development and the pilot were implemented by project closing. The following activities were to be implemented: Sub-component 2.1-Curriculum Renovation for Basic Education (Total US$ 1.76 million, IDA Credit US$ 1.48 million): The objective of this sub-component was the development of a national core curriculum for elementary and lower secondary education that was child-centered, promotes cultural diversity and understanding, and furthers knowledge and skill levels which reflect established learning objectives and universal standards. Successful implementation of the curriculum renewal program, including testing and evaluating innovative programs, such as mother tongue instruction in the early grades, would gradually improve teaching and learning, develop an effective bilingual/ multilingual education model, and lead to a comprehensive curriculum policy. Such policy would, in the medium and long term, improve the overall quality and internal efficiency of primary and general secondary education in Chad. By the end of the project, core curricula for first, second and seventh grades would be developed and published. To

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facilitate a coherent and effective approach to quality improvements in education, a new permanent and autonomous institution to be created under the Project, the CNC was to integrate related functions of curriculum development for student and teacher education and training, learning assessment and research, support materials/textbook development, and lead implementation of pedagogic activities. Under this sub-component, the following activities were undertaken: (a) Training of technical staff at the CNC: all relevant technical staff of the CNC were trained in various aspects of curriculum design, implementation, and M&E through study tours, seminars, workshops, and structured training courses. By project restructuring 10 staff were trained at MA level in curriculum related fields, and by project closing, this activity had been completed successfully. (b) Establishing and publishing a curriculum development framework supported by relevant studies, including a feasibility study to implement bilingual education in Chad, research on key curriculum and language issues and successful classroom experiences in Chad and elsewhere, as well as building a national consensus on curriculum reform objectives. By project restructuring, planned studies had been conducted (6 in total see Annex 9) including the feasibility study on bilingual education in Chad. The national framework for curriculum development was designed, discussed, and adopted nationally. (c) Developing and testing by grade level new curricula (objectives, content, methods, teaching materials including the gender dimension and other inter-sector questions) in basic education. At project restructuring, finalization of curriculum for all grades of primary education was about to be completed. The Government and the Bank agreed to continue to support this activity but limit the testing to grades 1 to 4 (CP1 and 2) in 30 schools (under the revised component 2-sub-component 2.1). At project completion, curriculum for all six grades of primary education as well as textbooks had been completed and tested in 10 schools. (d) Classroom-based research and evaluation of specific curriculum innovations, trial curriculum materials, and teacher practices in the classroom. Following CNC staff training, limited researches were conducted by some of the staff on CTs performance and how to improve their teaching practices. Findings and other educational issues were also analyzed and published twice a year in the Chad National Review of Education (created in 2009) with support from the national budget. In addition, more than 20 studies were conducted on various aspects of the education system. (e) Nationwide discussion of the results of the evaluation, consensus-building, and the decision-making process for nationwide implementation. This activity will follow the pilot which was just completed. The activity was dropped under restructuring of project due to time constraints to pilot and hold discussion before project closing. (f) Printing and distributing a new first, second and seventh grade curricula to all schools for application in 2006-2007. The new curriculum were to be tested in seven ENIs (of which three are bilingual) and 31 schools (satellites, urban, rural, and demonstration schools): Faya (3), Mongo (3), N'Djamena (5), Abeche (5), Bongor (5), Sahr (5), and Moundou (5) as well as in seven secondary schools. This activity was found to be overambitious and was, therefore, dropped at restructuring.

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Original Sub component 2.2 Support for the development and management of textbooks, pedagogic and didactic materials (Total US$ 9.27 million, IDA Grant US$ 5.25 million). The objective of this sub-component was to improve children's learning opportunities by providing textbooks and reading materials to schools, as well as didactic guides to teachers and school management committees, in sufficient number and of adequate content and pedagogic quality. Successful implementation of the project would mean: each child had access to one reading and one math book (French and Arabic) in all grades; all teachers and school committees were using the new guide books for each grade and subject; and new manuscripts for CP1 mathematics and reading (2.French, 2 Arabic,) and four teachers' guides, were ready to be published. The following activities were planned under this sub-component: (a) Acquisition of existing textbooks and distribution to schools: (i) 2.93 million textbooks (reading, math, science for Grades 1 – 6); (ii) 500,000 children's literature books in French, Arabic and national languages (approximately 120 books per school in 4,000 schools), including the schools experimenting with the use of national languages; (iii) slightly more than 300,000 textbooks for junior high school (Grades 7 - 9) in math, French, Biology and Physics and 4,500 teacher's guides; and (iv) a collection of reference books including approximately 4,000 dictionaries in French or Arabic and teaching materials for elementary schools distributed in metallic containers. At restructuring and project closing, a total of 3.7 million textbooks and other materials had been purchased, adapted, and distributed to schools around the country in 2004/2005.

(b) Development of new teachers' guides, textbooks and support materials: (i) TA for the DEL (Departement de l'Edition du Livre at the CNC) and the textbook editorial commissions in textbook development, management and monitoring of editorial activities (i.e. technical specifications of pedagogic materials, quality standards for approbation, experimentation of manuscripts, and evaluation of new textbooks in the designated languages of instruction); (ii) development of 16 new teachers' guides to improve the pedagogic use of existing books for Grades 1 through 6 (both French and Arabic); and (iii) development of four new manuscripts for reading and math books in French and Arabic, grade one, and teachers' guides. This will be in line with the language of instruction policy, to be adopted, and new curricula for students and teachers expected to be available for Grade I at the end of Phase one. At project closing, activities related to revision of existing textbooks were implemented with the development and distribution of teachers’ guides. Manuscripts in line with the new curricula were to be developed and tested.

(c) Strengthening the management, distribution and use of textbooks: Establishment of a textbook management unit (Unite de gestion du livre - UGL) at the MEN/DG. The UGL is responsible for managing the entire textbook chain, from ordering new textbooks to acquiring existing textbooks and ensuring their distribution to schools. It will do this in conjunction with the CNC/DL, CNSALS (Commission Nationale de Sélection et d'approbation du livre scolaire), DAPRO and the schools. Technical assistance and training will be provided to the UGL, to address cost and quality issues in textbook provision, strategic planning and distribution to schools, availability of books in the

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classroom, conditions and risks for national textbook production, and parents' information/education in the use and maintenance of textbooks. The UGL was established and benefited from training and technical support, which helped the development of a textbook management guide and its distribution in 20,000 copies to teachers and school directors. Original sub-component 2.3 Learning assessment and research (Total US$0.68 million, IDA Credit US$0.49 million) The objective of this sub-component was to develop and implement adequate and effective approaches to learning assessment and to monitor the quality of schooling outcomes. Successful implementation of the project would include the further development of diagnostic assessment tools and teachers trained in their everyday use in the classroom, and the application of standardized tests in experimental and control schools. Activities planned under this sub-component were dropped after restructuring because only one out of five activities had been completed. Initially planned activities included: (a) Training of the technical staff at the CNC: technical staff at the CNC were trained.

(b) Development and experimentation of diagnostic learning assessment tools in line with the new elementary education curriculum. The new curriculum was not developed and the activity was part of the piloting which ended in June 2012.

(c) Training teachers in formative and summative assessment methods: Not completed and dropped.

(d) Development and application of standardized tests in CP mathematics, French and Arabic, as well as in national languages in experimental schools. Not completed and dropped.

(e) A feasibility study to reform the overall examination system. Not completed and dropped. Original Sub-component 2.4: Teacher Training (Total costs US$ 25.72 million, IDA Credit US$ 4.69 million) which was revised to Sub-component 1.4: Teachers training. By the end of the project, the sub-component was to have ensured: (a) in-service Level 1 training for 8,000 CTs in the CFCs, of which 2,400 will have completed Level 2 certification by the end of the project; (b) in-service training in the ENIs for 2,400 CTs at Level 2 (which corresponds to the basic teacher training program offered by the ENIs in their regular program) of which more than 1,000 will be certified at Level 2 by the end of the project; (c) pre-service training for 6,400 teachers in the ENIs (1,600) per year, and (d) pre-service training for 500 teachers in the ISESCO training center. If these objectives are reached, the percentage of teachers having reached Level 1 certification will increase from 47% to 61% between the beginning and the end of the project (4 years) whereas the percentage of teachers with Level 2 certification will rise from 40% to 43%.

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While assessing progress during the MTR, already 10,000 CTs had been trained for Level 1 certification and curriculum for teachers training had been developed. The Bank and the Government agreed to have an additional 1,500 CTs trained for Level 1 and 1,700 CTs trained for Level 2. At project closing a total of 11,500 CTs were trained for Level 1 and 1,700 certified for Level 2. In addition, 1,500 malettes pedagogiques were distributed to CTs. The following activities were planned at project appraisal: (a) Strengthening the institutional capacity: This included: (i) improving the relevancy of pre-service and in-service teacher training programs so that new teachers coming out of the ENI will be well-prepared for the current working environment and that the CTs will adapt and adopt teaching practice and theory along the lines of what is being taught in the ENI; (ii) creating regional training networks emanating from the ENI to the CFC, SAP and EEB; (iii) reinforcing these regional networks by setting up centers for documentation and pedagogical information; and (iv) establishing connectivity between these regional networks and establishing links with international training centers. (b) In-service Training of CTs: (i) in-service Level 1 training in the CFC and SAP (approximately 2,000 per year) in three sessions in accordance with the newly revised program, and (ii) Level 2 in-service training (approximately 3,400 teachers over four years) provided in the 7 ENI during school vacations over a period of two years in accordance with a new program and revised pedagogical strategies. (c) In-service training: (i) in-service training of a cohort of teachers (about 93 in the 7 ENI) for experimenting the new curriculum; (ii) in-service training of all CP teachers, school directors, pedagogic counselors and inspectors in line with new curriculum, pedagogic approaches and materials; and (iii) TA for a study to determine the most appropriate in-service training model and pedagogic support to teachers (dispositif de suivi et d'encadrement pedagogique). (d) Curriculum development for teacher education (CNC): (i) technical assistance for developing a coherent pre- and in-service teacher education curriculum at the ENI and CFC, as well as for instructors /teacher trainers at the ENI and ISSED; (ii) training of technical staff in curriculum development, including classroom-based research, primarily concerned with developing the reflective practitioner in the classroom, and gender modules to promote gender awareness in the classroom; and (iii) development of all training modules and materials for the training activities listed above. (e) Pre-service Teacher Training: The ENI will continue to provide pre-service teacher training to 1,600 student-teachers per year, recruiting from among the pool of high school graduates and offering a one-year training program. Original Component 2.5: ECD Program (Total US$ 3.70 million, IDA financing US$ 0.00 million) The objective of this component was to develop, using 30 existing community structures (CECR/U) and creating 30 new ECD Centers (Centres de Developpement de la Petite Enfance), an integrated pilot intervention in early childhood and parental education, to support cognitive, emotional, physical and social development of young children. Initially, the ECD program was to be launched in 8 prefectures (Guera, Batha, Kanem, Tandjile, N'Djamena, Kabia, Biltine, Barh-Ko), and 12,000 young children were to be

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beneficiaries during the four years of piloting. The results of the intervention were to be useful as a model for nationwide application. This sub-component did not benefit from the project funds and did not receive any other support, thus it was dropped at restructuring. At appraisal, the following activities were planned: (a) Parental education strategy in 60 ECD community centers: APEs were to be trained to manage each ECD community center. They were to be responsible for: (a) mobilizing their communities for creating 30 new ECD community centers and rehabilitating 30 CECRIU; (b) ensuring proper maintenance of sanitation facilities. The 60 ECD community centers were to be equipped with 120 latrines and 60 water delivery points; and (c) 6,000 families were to be trained in health, hygiene and nutrition education through 96 radio broadcasts and distribution of 500 educational guides; (d) 240 stocks of pedagogical materials, toys, essential medicines and kitchen equipment kits were to be distributed in 60 ECD community centers to facilitate the implementation of the integrated ECD approach (health, nutritional and pedagogical activities).

(b) Training and recycling program for the actors involved in the ECD subcomponent: Activities included: (a) TA for a review and adaptation of the pedagogical program existing in the CECRIU and validation in the 60 ECD pilot community centers, (b) development and implementation of a national language-friendly training program for 120 community monitors in pedagogical activities; (c) development, publication and distribution of 2,000 pedagogical workbooks and guides for the ECD monitors; and (d) development and implementation of a training program for 40 local supervisors in the ECD community-based approach.

(c) Capacity building in ECD program management for the three relevant sectors (education, social protection and health): an inter-sector commission for the preparation of ECD component was to be created and integrated by the three relevant ministries and UNICEF. This commission was to be strengthened during the implementation and evaluation of the pilot. Each ministry was to have a specific responsibility in the implementation. A project coordinator was to be responsible for managing the inter- sector commission's meetings and ensuring follow-up on actions taken. The main activities were: (a) a participatory management and leadership training for the inter- sector team; and (b) study tours in other Africa countries, to exchange and learn about achievements of others programs, for the ECD coordinators in each participating ministry. ECD coordinators were to be freed of other responsibilities in their respective ministries during the project implementation period.

(d) Follow-up and evaluation of the piloting: Because this is a new experience in the country continuous follow up and an evaluation of the strategy was planned. Activities included: (a) grade of children's development measured. (b) community's participation tested; (c) community monitors' activities evaluated; (d) follow up of the utilization of pedagogical programs, materials, training programs, emissions of radio, etc. (e) sustainability of the program identified; and (f) mechanisms to articulate the ECD

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community-based programs with the school's activities identified, to guaranteed the preparation of young children to achieve schooling. Original sub-component 2.6-National Languages Reading Development Program (ELN) (Total US$ 1.22 million, IDA Credit US$ 1.07 million) This subcomponent aimed to assist in the development of a bilingual pedagogy with initial mother tongue instruction to facilitate communication between children and teachers. Such an approach aimed to encourage active participation of children in the learning process, in particular in learning to express oneself verbally, reading and writing, thereby facilitating the transition to the 2nd or 3rd language of instruction (French or Arabic). Successful implementation of the sub-component was to result in 90% of the experimental school students repeating less often and in developing higher aptitude in reading and writing in the 2nd and 3rd grades, and the CNC will integrate the bilingual pedagogical model tested in the curriculum revision and textbook development processes. Activities under this sub-component were successfully implemented by GIZ in 130 schools around the country and pedagogical materials were distributed to students. An evaluation was carried which proposed an action plan for scaling-up the pilot. The following activities were to be carried out: (a) Pedagogical materials and support to existing schools: (i) in-service training for teachers of all grades (60 schools); (ii) development and distribution of pedagogical materials and teacher's guides to teachers; (iii) distribution of textbooks and reading books in 5 national languages; and (iv) continuous monitoring and assessment of results of the implementation of the teaching programs and of learning outcomes by SES and DEB (Division de l 'enseignement de base) in collaboration with DAPLAN. (b) Extension of mother tongue instruction/national languages: (i) TA for studies and for setting up a rigorous M&E system; (ii) in-service training for 1,300 teachers (Grades 1 and 2) in130 number of schools, including didactic materials/teachers' guides in selected languages; and (iii) acquisition and distribution of textbooks and reading materials in national languages, French and Arabic for participating experimental schools. Original sub-component 2.7-IRI Program (Total US$ 3.28 million, IDA financing US$ 0.00 million) The objective of this sub-component was to enhance the quality of primary education and to increase enrollment through the development and launching of a multi-channel learning program with IRI at its center. The low quality of instruction, especially in rural "community schools," was a significant obstacle to improving education system efficiency. IRI and other multi-channel strategies represent a relatively inexpensive tool for improving the quality of teaching and system efficiency. During Phase one, multi- channel learning strategies will be developed and implemented for the CP and CE sub- cycles. Approximately 960 teachers, 120 school directors and 12,000 students in the CP and CE sub-cycles will have received the radio broadcasts and accompanying instructional materials by the end of the four year experimental phase. Planned activities at appraisal included: IRI broadcasts, IRI workbooks and teacher's guides, Teacher-training program, and Evaluation. However, no activity was

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implemented because of lack of resources, and the sub-component was dropped at restructuring. Original Sub-component 2.8: School Health and Nutrition Program (Total US$ 1.53 million; IDA Grant US$ 1.38million), which was revised to Sub-component 1.5: Support to school health and nutrition. The objective of this component was to enhance students' learning and educational achievement through improved health and nutrition status of the children. If the sub- component were successfully implemented, a 50 % reduction in the prevalence of parasitic infection and micro-nutrient deficiencies was expected in the intervention area. Additionally 10 % of the existing schools were to have appropriate and adequate sanitation and 15% of current teachers were to be trained to provide health education. These improvements were expected to contribute to the lowering of the rate of dropout and the rate of repetition. The School Health, Hygiene and Nutrition program was to be launched initially in 15 Departements with the expectation of full country wide coverage during subsequent phases. The MTR found that: (i) a school health policy was developed and disseminated country wide, (ii) 180 latrines blocs and 180 wells were built in existing schools and communities were trained to maintain infrastructures, (iii) teachers’ manual and tools were developed and distributed to schools around the country following teachers training workshops, and (iv) De-worming and micronutrients were distributed twice a year for 150,000 students across the country. The Bank and the Government agreed to continue distribution of de- worming and micronutrients to an additional 90,000 students and provide training to 180 teachers on HIV-related topics. At project completion, de-worming and micronutrients for the 90,000 students had been received and were ready to be distributed at the beginning of the following (next) school year, and 180 teachers have received planned training. However, no impact evaluation was conducted to assess progress against the 2000 baseline study. The activities described below were expected to become integral to all school programs - public and private:: (a) Development and dissemination of school health policies: through strategic communications methods including radio and television which would cover the whole country, and departmental discussions in all 29 geographic departments;

(b) Sanitation and water: The infrastructure unit would build 2,200 new latrines blocs and dig wells for 300 rural schools and extend water pipes to 80 urban schools. These activities were to be achieved in four years covering 10% of the existing schools in 15 Departements. To ensure proper maintenance of these facilities, the school health component was to create a cadre of local trainers to train approximately 990 APE members (three for each school) who were also members of the local school health committees in the proper care and maintenance of water and sanitation facilities.

(c) Health, hygiene and nutrition education: Lessons, teachers' manuals and other teaching tools for health, nutrition and hygiene education using life-skills methods to cover approximately 1700 schools - 50% of 3400 existing schools in four years – were to

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be developed. 3,000 teachers and 700 health agents were to be trained by 150 trainers from MEN and MOH, and approximately 4,200 school health guides were to be published.

(d) HIVIAIDS education: Development of training material for teachers and trainers to cover 1,700 schools and training of teachers in HIV-related topics.

(e) De-worming, micro-nutrient and other health services for 190,000 students in 330 schools. Original Component 3: Literacy and Non-formal Education US$ 7.99 million (IDA financing: US$ 3.73 million). This component was dropped at project restructuring. Activities completed were considered as the end of project revised targets. At appraisal, the objective of the component was to develop a cost-effective, equity-enhancing model for delivering literacy and practical skills training to out-of-school youth and adults through private sector providers. At project restructuring, 20,000 adults (of which 60% were women) were trained in literacy programs, and this achieved target was agreed to be considered as the end of project revised target and all other activities dropped because they were not funded. Given that a sound system was in place, the overall performance of this component is considered moderately satisfactory.

Original Component 3: Literacy and Non-formal Education Revised Comments US$ 7.99 million (IDA financing: US$ 3.73 million) Sub-component 3.1: Literacy courses for adults (15 years +) Dropped and achievement by - restructuring was considered as end of project target. Sub-component 3.2: Non-formal education activities for - Dropped, not funded unschooled and out-of school youth in the 10-14 years age group Sub-component 3.3: Strengthen reading and basic skills in the - Dropped, not funded target villages by the set-up of post literacy activities Sub-component 3.4: Literacy program Monitoring and Evaluation - Dropped

The following was planned, but only adult literacy programs received funding from the project: Sub-component 3.1: Literacy courses for adults (15 years and older) (Total US$3.36 million, IDA Credit US$3.0 million). Using the "faire-faire" approach learning and literacy activities was to be provided to 50,000 adults with the priority of women achieving an acceptable level of functional literacy (which is roughly equivalent to the level obtained by primary education). Sub-component 3.2: Non-formal education activities for unschooled and out-of school youth in the 10-14 years age group (Total US$2.32 million, IDA Financing US$0.00 million). Using a new outsourcing strategy (the faire-faire approach), the subcomponent

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was to enable 15,000 out-of-school and unschooled youth in the 10 -14 years age group to achieve literacy. Sub-component 3.3: Strengthen reading and basic skills in the target villages by setting up post literacy activities (Total US$1.07 million, IDA US$0.00 million). Component 4: Strengthening Planning, Management and Program Monitoring (US$13.54 million of which IDA Credit US$7.13 million).

This component was restructured as component 2 as per the following table. Original Component 4: Strengthening Planning, Revised Component 2: Enhancing Management and Program institutional capacity (US$3.8 Comments Monitoring (US$13.54 million of million) which IDA Credit US$ 7.13 million) Sub-component 4.1: Establishment of Sub-component 2.1: Support to the Continued with CNC National Curriculum Center (CNC) curriculum activities included. Sub-component 2.2: Support to local New activity school committees Focused on transfer of funds to local communities as new activity. Sub-component 4.2: Strategic Merged into Sub- Institutional Capacity Building for component 2.3 PARSET - MEN/Communities Sub-component 4.3: Strengthening of Sub-component 2.3: Strengthening of MEN Planning and Monitoring the Education Management Continued Capacities Information System (EMIS) and project management Sub-component 4.4: Strengthening of Sub-component 2.4: Developing the Analytical Capacity, Policy capacity for sector analysis and policy Continued. development, Monitoring and Coordination

The objective of the original component was to provide the institutional capacity strengthening necessary for successful program planning, activity management, and M&E. The component aimed to strengthen specific units within the MEN, such as the planning directorate, to encourage dynamic cross-cutting interventions and strategic planning. The component also included the establishment of a permanent institution to be the locus of a major curriculum renewal effort. Activities were to be implemented through four sub-components: Sub-component 4.1: Establishment of CNC (Total US$ 5.17 million, IDA Credit US$ 2.12 million) which focused on building and equipment of the CNC office, and recruitment and training of technical staff; Sub-component 4.2: Strategic Institutional Capacity Building for PARSET - MEN/Communities (Total US$ 3.45 million, IDA Credit US$ 2.47 million) focusing on MEN capacity-building for teacher training, MEN capacity-strengthening activities, and capacity-strengthening

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activities for APEs; Sub-component 4.3: Strengthening of MEN planning and monitoring capacities (Total US$3.22 million, IDA Credit US$1.66 million) to produce timely, relevant, and reliable data on education; and Sub-component 4.4: Strengthening of the Analytical Capacity, Policy development, Monitoring and Coordination (Total US$ 1.70 million, IDA Credit US$ 0.87 million). While assessing progress during the MTR and for project restructuring, the following activities were conducted: (i) construction and equipment of CNC and recruitment and training of technical staff; (ii) support to FENAPET to conduct training and sensitization of APEs, grant for the construction of 74 schools, training of 3,820 CTs, and signing of a protocol with the Government; (iv) support to DAPRO to produce timely and reliable education data; and (v) support to the PIU. During project restructuring, the Bank and the Government agreed on continuing most of the planned activities under a Revised Component 2: Enhancing institutional capacity (US$3.8 million) which aimed to strengthen some key capacities in the central Ministry and at the local levels to manage the education sector and the project. The overall performance of this component is rated moderately satisfactory. The revised component will be implemented through the following: (a) Subcomponent 2(a): Support to local school committees. School Grants to be piloted in 150 public primary schools. Capacity of school committees (including APEd) and school heads to be reinforced to manage the grants; sensitization and information dissemination campaigns to be carried-out; and Local NGOs to be recruited to train and assist them. This represented a new activity and included goods and services, consultant, training and sub-grants. (b) Subcomponent 2(b): Support to the National Curriculum Center (CNC) - Enhancement of the capacity of the CNC to manage and implement the curriculum reform. The new curriculum for the Classes Preparatoires (first 2 years) and the Classes Elementaires (next 2 years) was to be piloted in 30 schools. This included training and workshops, works, equipment, books and furniture for the CNC, TA, printing of new textbooks, curriculum and teacher guides. (c) Subcomponent 2(c): Strengthening of the EMIS and project management. MEN would develop capacity at all levels for the production of timely Education Statistical Yearbook and Key Education Indicators. It was to include TA, training/workshops, provision of goods and equipment. In terms of the project management, the restructured project was to continue to finance the operating costs, training and TA to the PIU and the Direction des Projets Education in the MEN. (d) Subcomponent 2(d): Developing capacity for sector analysis and policy. Preparation of the IESP by the MEN will be supported. Assessment of the innovative approaches undertaken under the original project will be carried out. The restructured project will cover the costs for technical assistance, goods, workshops, studies and training/study tours. At project closing, the following had been undertaken: Subcomponent 2a: the study on school grants implementation was carried-out. However, the grant is not implemented, NGOs are not recruited and APEs not trained;

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Subcomponent 2b: support to the CNC continued and curriculum for all levels of primary (Grade-6) was developed and was being implemented in 10 schools. The pilot report has been made available at the end of the school year in July. Subcomponent 2c: the EMIS was in place and was producing education information. However, timely production of data as well as its reliability remain concerns. Subcomponent 2d: work on the IESP is still in progress. The Ministry of Education has conducted assessment of innovative approaches developed under the project, and the list of studies is in Annex 9. In light of the above, the overall rating of project performance is summarized below:

Original Project – Phase 1 (December 2003-December 2010): Disbursement at 74 percent (Credit and Grant) Project Relevance Achievement of PDO Efficiency Overall Rating Modest Moderately Unsatisfactory Low Moderately Unsatisfactory Project Restructuring - Phase 2 (January 2011-June 2012): Disbursement at 20 percent of total funds Project Relevance Achievement of PDO Efficiency Overall Rating Substantial Moderately Satisfactory Modest Moderately Satisfactory Overall Project Ratings – 95 percent disbursement of total funds (Credit and Grant) Project Relevance Achievement of PDO Efficiency Overall Rating Modest Moderately Unsatisfactory Low Moderately Unsatisfactory

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Annex 3. Economic and Financial Analysis At appraisal, a NPV was not calculated for the project nor was an economic rate of return defined for the investment. However, a cost effectiveness analysis was conducted based on an analysis of the internal efficiency of the education system, unit costs of infrastructures, textbooks, and teachers’ salaries. The analysis conducted was based on the assumption that investments in education are generally justified, because they increase the productivity of labor and are associated with beneficial social outcomes.

Education financing: Between 1995 and 2000, government education expenditure trends showed that government resources allocated to education stagnated or even decreased in real terms. While the budget for educational operations increased at a faster pace than the State's general budget (with an annual growth of 8.1% for education as against 6.2% for the State budget), capital expenses set aside for education fell by 12.8%, as compared to the State's investment expenditure as a whole, which stagnated. Education's share in overall state expenditure fell from 16.3% in 1995 to 14.5% in 2000. Recurrent expenditure on education and training rose at a mean annual rate of 14.1% in nominal terms between 1995 and 2000.

During the project preparation in 2002, before Chad started benefiting from the oil revenues, its economy was mostly driven by agriculture, and the country GDP per capita was estimated at US$ 220, which is below the Sub-Saharan Africa average. After 2004, resources available increased substantially, however the impact on poverty seems to be limited. In 2008, the country’s GDP per capita had risen to about US$ 755, mainly due to revenues generated by the oil sector (43 percent of GDP during the 2006-2009), which represented about 70 percent of total government revenues during this same period. Within priority sectors, the infrastructure and education sectors have the largest shares of government revenues, at 13 and 12 percent respectively. However, education budget execution is low (72.3 percent in 2007). The share of the Government’s budget allocated to education declined between 2000 and 2010, from 14.5 percent to 12 percent. On a positive note, education budget execution improved recently (97 percent in 2009) indicating some efficiency gains.

Education financing was targeted to addressing some of the many issues that seriously weakens the quality of education delivered in Chad. These obstacles relate to a lack of human and physical inputs, insufficient educational support, inadequate school infrastructure and shortage of school furniture, educational materials and textbooks. The project financing supported interventions in these specific areas. To assess the cost-effectiveness of the investments undertaken under the project, the analysis took into account four main elements: (i) the internal efficiency of the education system; (ii) teachers’ salaries; (iii) the unit costs of classroom construction; and (iv) the purchase and distribution of textbooks. Internal efficiency: The project aimed to improve internal efficiency through an aggressive policy to reduce repetition and drop-out, improve transitions among grades, training and integration of CTs, and by the State taking over the entire cost of community

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schools. Overall primary education internal efficiency did not improve between 2000 and 2010 illustrating high levels of wastage in the system. In 2002 at the time of appraisal, the internal efficiency of primary education was low, particularly for community schools students and girls. Out of a cohort of 1,000 students entering the 1st primary school year in 2002: - 259 leave school without going beyond the 1st grade (268 in the case of girls); - 480 reach the 5th grade (434 in the case of girls). In 2010, out of a cohort of 1,000 children entering 1st grade of primary: - 258 leave school without going beyond the 1st grade (350 in the case of girls only); - 480 reach the 5th grade (380 in the case of girls). The diagram below shows the internal efficiency of the country’s primary education system in 2010.

Profil de scolarisation au primaire 140% 132% Filles 120% 120% Garçons 99% Total 100% 108% 84% 89% 80% 71% 78% 73% 58% 60% 60% 47% 62% 48% 49% 40% 37% 38% 20% 28%

0% CP1 CP2 CE1 CE2 CM1 CM2

With regards to the transition from primary to secondary education the situation improved slightly: in 2002, out of 1,000 students, 248 obtained their CEPE certificate (213 in the case of girls), and in 2010, the number of students obtaining their end of primary education certificate rose to 308 (280 in the case of girls). However, the repetition rate declined only marginally from 2000 to 2010 and the drop-out rate did not improve. As a result, between 2000 and 2010 the primary education internal efficiency deteriorated slightly instead of improving. 2000 2005 2010 Drop -out Rate 10.8 17.4 11 Repetition rate 27 19.6 24 Primary Survival Rate to 44 - 36 Grade 6

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Teachers’ salary: Over the life time of the project, CTs subsidies paid by the Government increased from an average of CFA 240,000/year in 2000 to CFA 450,000 starting in 2005 (CFA 300,000 for CTs level 1, and CFA 540,000 for CTs level 2). However, instead of decreasing, the number of CTs (particularly CTs level 1) increased substantially from 8,600 in 2000 to 18,300 in 2010 (74% of all primary teachers), more than the high scenario increase of CTs in the system set in 2020 (56%). Additionally, out of the 21,100 CTs in primary education in 2010, only 63 percent received training and less than 2,000 CTs were certified. This evidence suggests likely lack of “value for money” as far as teacher salaries are concerned. Upgrading the status and qualifications of the CTs was expected to have a favorable impact on internal efficiency and learning outcomes under the project, but the increased teacher subsidies were associated only partially with these desired effects.

Primary Education Teachers in Public Schools in CHad (2010)

Instituteurs Ordinaires 21% Instituteurs Community Adjoints Teachers 5% 74%

Construction unit costs: The project supported construction of 400 classrooms, 265 latrines, and 255 wells. It also provided more than 12,000 student desks, and contracted with eight NGOs through APICED and FENAPET to transfer funds to schools, communities, and CTs. While classroom construction and wells contracts were managed by the PIU, latrines contracting was delegated to APEs and communities. During project appraisal, unit costs estimates were defined in comparison to other similar countries. However, implementation revealed that unit costs were underestimated as per the table below resulting in the construction of fewer classrooms than originally planned. Delayed procurement and the long approval process of contracts played a significant role in increasing unit costs of goods and services. After restructuring, unit costs were unchanged until project closing. Unit Cost Classroom construction Bloc of latrines Wells At appraisal 5,500,000 2,500,000 4,500,000 Real cost 7,000,000 3,500,000 9,000,000 % increase 127.2% 140% 200%

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Textbooks: In addition to investments made in infrastructure and equipment, the project also purchased textbooks. Initially, the project planned to acquire 2.65 million existing textbooks and to adapt them to the country context with teachers’ guides and training to enable them to teach the content of the textbooks. The project used the textbook funds to purchase 3.1 million existing textbooks in French and Arabic and to edit teachers’ guides. While the procurement process was often lengthy, the project ended up successfully meeting the objectives of purchasing and distributing textbooks and provisional funds were sufficient to acquire the needed textbooks.

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Annex 4. Bank Lending and Implementation Support/Supervision Processes

(a) Task Team members Responsibility/ Names Title Unit Specialty Lending Mourad Ezzine Lead specialist AFTH3 Team Leader Serge Theunynck Architect/Senior Implementation specialist AFTH3 Infrastructure Amina Adele Temada Team Assistant AFTH3 Aminata Maiga-Toure Education Specialist AFTH3 Education Berthe Tayelim Team Assistant Bettina Moll Education specialist/consultant AFTH3 Education Health and Donald Bundy Lead Specialist nutrition Douglas Lehman Education Specialist/consultant AFTH3 M&E Agnes Albert-Loth Senior Financial officer FM Jean Charles de Daruvar Senior Counsel Legal Magaye Gaye Financial Management specialist/consultant FM Roselyne Leroy Language Program assistant Seung-Hee Lee School health specialist/consultant AFTH3 Health Tatiana Romero Child development specialist/consultant AFTH3 ECD Bjorn-Harald Nordtveit Education specialist/consultant AFTH3 Literacy Mahamat Goadi Louani Senior HD specialist AFTH3 Literacy Guy-Joseph Malembeti Procurement officer Procurement Serigne Omar Fye Sr. Environment specialist Environment Edeltraut Gilgan-Hunt Operation analyst Implementation Kristine Ivarsdotter Senior Social development specialist AFTH3 Decentralization Willem Zijp Operation adviser AFTH3 Implementation Quality Jacob Bregman Lead education specialist AFTH3 Education Makha Ndao Lead economist specialist Teacher training Myrina McCullough Operation analyst Implementation Astania Kamau Language Program assistant

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Supervision/ICR Boubou Cissé Sr. HD specialist AFTED TTL Marelo Beccera Sr. Economist LCSHE TTL Patrick Philippe Sr. Operation officer LCSHE TTL Ramanantoanina ICR primary Pierre Joseph Kamano Sr. Education specialist AFTED author ICR primary Emanuela di Gropello Sector Leader AFTHD author Michel Welmond Lead CMEIC Hugues Agossou Sr. Auditor IADVP Anne Anglio Sr. Program assistant ECSHD Berthe Wanjeri Mwangi FM specialist AFTFM Celestin A. Niamien FM specialist AFTFM Marie-Helene Cloutier Education Economist AFTED Bertrand D. Dechazal Consultant AFTPR Lucienne M. M’Baipor Sr. Social Development specialist AFTCS Roselyne L. Javed Procurement Specialist AFTHE Sekou Keita Consultant AFTED Christine M. Moser consultant AFTED Norosoa Andrianaivo Language Program Assistant AFTED Sakhevar Diop Consultant AFTED Horbira Nambatingue Djimte Temporary AFMTD Ningayo Charles Donang Senior Procurement Specialist AFTPC Lancine Dosso Financial Management Specialist AFTFM Sekou Keita Consultant AFTFM Mahamat Goadi Louani Senior Human Development Specialist AFTHE Josiane M. S. Luchmun Program Assistant AFTSP Etienne NKoa Sr Financial Management Specia AFTFM Berthe Tayelim Program Assistant AFMTD Paulette C.E. Aida Thioun Program Assistant AFMTD Zoua

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(b) Staff Time and Cost Staff Time and Cost (Bank Budget Only) Stage of Project Cycle USD Thousands (including No. of staff weeks travel and consultant costs) Lending FY02 31 106.36 FY03 41 131.30 Total 72 237.66 Supervision/ICR FY04 37 106.36 FY05 57 162.97 FY06 45 117.71 FY07 44 164.23 FY08 17 52.97 FY09 28 82.51 FY10 30 115.73 FY11 16 83.56 FY12 27 104.54 Total 301 990.58

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Annex 5. Beneficiary Survey Results NA

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Annex 6. Stakeholder Workshop Report and Results NA

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Annex 7. Summary of Borrower's ICR and/or Comments on Draft ICR (A full version in French of the Borrower’s ICR is available on file). The initial objectives of the project was to assist the Government of Chad in developing its policy framework, strategies and means for achievement of quality universal basic education and implementing its strategy to improve access to and equity of education. The project restructuring addresses some inconsistencies on the project objectives and focuses them on (i) improving access and equity in primary education and (ii) increasing capacity in strategic management and curriculum development. The project was not national in scope, but rather designed to assist 8 provinces, and its objectives were in line with the poverty reduction (PRSP, June 2003) which was under preparation during project preparation, the Education Sector Program (ESP, 2000) and the Bank Country Assistance Strategy (May 2003). The project originally consisted of four components and various subcomponents of activities. The revised project activities were either reorganized under the restructured two components and nine sub components, or dropped because of their completion or irrelevance within the restructured project. Two new activities were proposed, on a pilot basis: (i) the provision of equipments to new secondary education schools built under the Government school construction program in Component 1 and (ii) a new scheme for direct provision of School Grants to public primary schools under Component 2. The original project design was overambitious and complex and the main implementation sub-periods of the project have been characterized by an indecisive and unstable social and political environment - leading some time to suspensions of activities. On the institutional front, the political instability has been reflected in the repeated reorganization of the education sector, and the constant merge/split of the ministry in charge of education. In addition, long and complicated national procurement processes and related decisions delayed substantially the implementation of the project. The government was also not able to always and timely provide the agreed counterpart funding for the project. These factors have all hampered and caused serious delay in the execution of the project and its overall performance. Nevertheless, the implementation of activities has had a lot of successes and the project has effectively supported some key institutional reforms, which have been implemented, notably the Center for National Curricula (with the successful completion of CNC technical staff recruitment and training, as well as of important studies that informed curriculum and textbooks development), the Agency for the Support of Community Activities (APICED), the partnership between the MEN and the National Federation of Parents Associations (FENAPET), completion of girls’ education activities, bilingual education pilot, completion of infrastructure and equipment activities, training of thousands of CTs; acquisition of micronutrients and de-worming, as well as the initiation of the development of a sound EMIS. On the positive side, some sub- components/activities experienced remarkable progress with respect to the originally planned objectives, namely: the training of the community teachers, the national languages program and the training of Parents Associations (APEs’).

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Conclusion: The results of the project demonstrated its relevance to the achievement of objectives in the field of basic education. Delays in implementation were mainly due to external factors (such as political instability) or procedural problems, including two project suspensions which contributed to slowing down implementation, that were mostly overcome with the Government’s support to ensure proper implementation of the project but also the guidance and help of the World Bank to help improve the performance of the project and its implementation paths. There is a net positive contribution of the World Bank support for the education sector in Chad. It is therefore recommended that the World the Bank continue to stay engaged in the education sector for the long term and consider a new phase of investment operation projects which should take into account the lessons learned from this phase.

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Annex 8. Comments of Cofinanciers and Other Partners/Stakeholders No cofinanciers. No comments provided by other stakeholders.

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Annex 9. List of Supporting Documents 1. Republic of Chad Poverty Reduction and Growth Strategy Paper: NPRS2: 2008 – 2011, April 2008; 2. ECOSIT2 data, 2003; 3. Chad Interim Strategy Note, World Bank, March 2010. 4. Liste des Études faites dans le cadre du PARSET : N° Titre Etudes/Evaluation Noms Consultants/Bureaux d’études Date 1 Etudes sur l’Etat de santé des enfants Michel Beasley, Simon Brocker et le Groupe 2000 scolarisables Santé-Nutrition scolaires 2 Les Initiatives Communautaires en Mamadou Ndoye et le Groupe Initiatives 2001 Education Communautaires 3 Etude sur l’effet de la Distance entre la Douglas et les responsables du service de la 2002- maison et l’école sur le taux de carte scolaire et de la gestion du patrimoine 2003 scolarisation en zone rurale 4 Etude pour l’évaluation des capacités C2G Conseil 2003 institutionnelles du MEN 5 Manuel des Procédures APICED Groupe APICED 2003 6 L’analyse des pratiques évaluatives Hélou Djarma 2006 7 Etude sur les orientations philosophiques Etude organisée en Forum 2006 8 Etude sur la demande socio-économique Etude organisée en Forum 2006 9 Etude sur les attentes socioculturelle Hassan Tolmbaye 2006 10 Fonds documentaires/CNC DIHAJIATE 2005 11 Etude relative à la mise en place d’un Cabinet Magic Communication 2007 système d’information en Alphabétisation 12 Elaboration du plan stratégique du Les cadres du Ministère de l’Enseignement 2007 MESRSFP Supérieur 13 Etude sur l’amélioration du système de EQUI GESTION (bureau canadien) 2007 formation initiale et continue des maîtres de l’élémentaire 14 Etude sur les filles ayant quitté au moins Emmanuel D’nalbaye 2007 le cycle du secondaire et qui pourront être formées et employées comme enseignants Communautaires dans la zone d’intervention de la scofille

15 Cadre de gestion environnemental et Bekayo Samuel 2009/10 sociale (CGES) 16 Evaluation technique du Centre d’Espoir Nathali Losson 2010 de Koundoul pour l’enfance

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17 Finalisation du plan d’action du système Bachar Osman Hachi 2010 de production des statistiques de l’Education au Tchad 18 Evaluation de la Sous-Composante Professeur Djarangar Djita Issa 2011 Enseignement en Langues Nationales 19 Rapport d’Audit Technique de Messadi Fayçal 2011 construction scolaire 20 Etude sur l’équipement et gestion des Naïbei Mbaibardoum Nathan 2011 salles informatiques dans trois lycées de Diguel Centre, de Gassi et de Walia à N’Djaména 21 Etude en vue de la création des Allandiguita Nadjalngar 2011 bibliothèques dans trois lycées de Diguel Centre, de Gassi et de Walia à N’Djaména 22 Mise en place d’un fonds documentaire Dadji Diajuté Seringue 2011 au CNC 23 Evaluation de la stratégie faire – faire en Betabe Cora 2011 alphabétisation 24 Système de Suivi des Dépenses à Cabinet FIDUSAO 2011 destination (phase 1) 25 Mise en place des bases des données Leonard SAWADOGO 2012 relationnelles de la DAPRO 26 Manuel de ¨Procédures de gestion de la Gerard Bizimana 2012 petite caisse scolaire au Tchad 27 Evaluation sur les activités de la sous – Yacabou Yaro 2012 composante scolarisation des filles

58 IBRD 33385

15°E 20°E 25°E

To 0 100 200 300 Kilometers Akhaltsikhe

0 100 200 Miles

CHAD LIBYA Aozou

Tarso Emisou Pic Touside (3,376 m) (3,315 m) s t i b e T i Zouar

20°N To 20°N Séguédine Emi Koussi (3,415 m)

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SEPTEMBER 2004