AFRICAN DEVELOPMENT FUND

COMPLETION REPORTSECONDARY SCHOOLS RENOVATION PROJECT

(EDUCATION II)

REPUBLIC OF CHAD

(LOAN Nº: F/TCH/EDU/89/19)

COUNTRY OPERATIONS DEPARTMENTCENTRAL REGION

PageCURRENCY EQUIVALENTS, WEIGHTS AND MEASURES,LIST OF TABLES, LIST OF ANNEXES, ACRONYMSAND ABBREVIATIONS, BASIC DATA, SUMMARYCONCLUSIONS AND RECOMMENDATIONS (i) to (xi)

1. INTRODUCTION 1

2. SECTORAL OBJECTIVES AND PROJECT OBJECTIVES 1

2.1 Project Objectives 12.2 Project Description 2

3. PROJECT FORMULATION 2

3.1 Project Origin 23.2 Identification, Preparation and Evaluation 33.3 Negotiations and Approval 3

4. PROJECT IMPLEMENTATION 3

4.1 Entry into force and Start-up 34.2 Modifications 44.3 Implementation Schedule 54.4 Reporting 74.5 Procurement of goods and services 74.6 Sources of Finance and Disbursements 7

5. OPERATIONAL PERFORMANCE 10

5.1 Overall Evaluation 10

6. INSTITUTIONAL PERFORMANCE 11

6.1 Secondary Education 116.2 Training of Trainers 126.3 Performance of Consultants, Contractors and Suppliers and

Executing agency 12

7. SOCIAL AND ENVIRONMENTAL EFFECTS 14

7.1 Social Impact 147.2 Environmental Effects 157.3 Impact on Women 15

8. SUSTAINABILITY 15

9. PERFORMANCE OF THE BANK AND THE BORROWER 16

9.1 Performance of the Bank 169.2 Performance of the Borrower 16

10. OVERALL PERFORMANCE AND RATING 17

10.1 Performance and Project Implementation 1710.2 Performance of the Bank during Project Cycle 17

11. 1CONCLUSIONS, LESSONS AND RECOMMENDATIONS 17

11.1 Conclusions 1711.2 Lessons 1811.3 Recommendations 19

This report was prepared by Mr. M.A. Cisse, Architect, OCDC 3 (Ext. 5352) and aconsultant following their project completion mission to Chad in November 1998.Questions on this document should be addressed to Mr. L.B.S. Chakroun, Director,OCDC (Ext. 4008) or to Mr. N. SAFIR, Ag. Division Manager, OCDC3 (Ext. 4392).

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CURRENCY EQUIVALENTS

Currency Unit : CFA Franc (CFAF)UA1 : CFAF 378.782088 at appraisal (March 1988)UA1 : 780.113 (November 1998)

WEIGHTS AND MEASURES

Metric system

FINANCIAL YEAR

1ST January – 31 December

SCHOOL YEAR

September – June

LIST OF TABLES

4.1 Sources of finance at appraisal4.2 Financing plan by source and by category of expenditure4.3 Annual estimated disbursements and by category of expenditure4.4 Actual ADF disbursements per annum and per category of expenditure6.1 Increase of pupils in schools under the project (from 91 to 98)8.1 Evolution of state budget and education budget from 1988 to 1997

LIST OF ANNEXES

1. Map of the Republic of Chad2. Retrospective matrix of the project3. Organisation chart of the Ministry of Education4. Organisation chart of the Education system5. Matrix of project impact on development, recommendations and follow-up

ACRONYMS AND ABBREVIATIONS

ADB : African Development BankBEPC : Brevet d’Etudes du Premier Cycle (Junior School Certificate)BET : Borkou-Ennedi-TibestiCEG : College d’Enseignement General (Comprehensive School)CEPE : Certificat d’Etudes Primaires Elementaires (Certificate given after an

examination at the end of the elementary cycle of studies)CST : Conseil Superieur de Transition (Higher Transition Council)DPE : Direction des Projets Education (Directorate of Education Projects)ENS : Ecole Normale Supérieure (University College preparing for the higher

posts in the teaching profession)FAC : Fonds d’Aide et de Cooperation (Aid and Cooperation Fund)IDA : International Development Agency

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INSEE : Institut National des Sciences de l’Education(National Institute of Education Sciences)

ISSED : Institut Superieur des Sciences de l’Education(Higher Institute of Education Sciences)

MINED: Ministry of EducationPTA : Parent Teacher AssociationUNDP : United Nations Development ProgrammeUNESCO: United Nations Educational, Scientific and Cultural Organisation

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REPUBLIC OF CHADSECONDARY SCHOOLS RENOVATION

(EDUCATION PROJECT II)

BASIC DATA

1. Loan number : F:TCH/EDU/89/192. Borrower : Government of Chad3. Beneficiary : Ministry of Education4. Executing Agency : Directorate for Education projects

(DEP) Ministry of Education

A. LOAN

ADF : Estimates at evaluation Actual

1. 10.78 million UA 9.54 million2. Repayment of 1% of the Principal

a year from the 11th to the 20th yearand 3% of the principal a year.

3. Repayment 50 years4. Grace period 10 years5. Date of loan negotiation 13 Sept. 19886. Date of loan approval 20 Sept. 19887. Loan signature 28 May 19898. Date of entry into force 30 Nov. 1989

B. PROJECT DATA

Estimates ActualFC LC Total FC LC Total

1. Total cost (UA million) 9.34 2.66 11.99 7.87 1.67 9.54

2. Financing Plan (UA million)

ADF: 10.78GOVERNMENT : 1.21

3. Date of first disbursement 31/12/894. Effective date of first disbursement: 31/05/915. Dead line for last disbursement: 31/12/946. Postponed dead line for last disbursement 31/12/977. Start-up of project activities Nov. 19928. Date of completion of project activities 31/12/98

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C PERFORMANCE INDICATORS

1. Balance : UA 1.24 million(ADF Loan)

2. Delay in implementation schedule

- slippage as regards entry into force : 18 months- slippage as regards date of completion : 72 months- slippage as regards last disbursement : 60 months- number of extensions after deadline for

last disbursement : 3

3. Status of implementation: : Percentage ofrealisationabout 95%

4. Verifiable indicators compared to allocationsby category of expenditure

A. Studies and supervision : 100.90% implementationB. Renovation/Extension: : 100% implementationC. Furniture: : 100% deliveryD. Equipment/Supplies : 100% deliveryE. Training and Scholarships 70% implementationF. Technical Assistance 95% implementationG. Operating Costs/Operations 85% implementation

5. Institutional performance (Poor/fair/satisfactory/very good)The Bank Group FairThe Government Fair

6. Performance of Construction Firms : PoorPerformance of Consultants : Satisfactory

D. MISSIONS

No. of persons Composition Persons/days Dates

Identification n.a. n.a. n.a. 02/85Prep/Evaluation 3 WARD/UNESCO 48 19-02/16/3/88Launch - - - -Supervision 2 NARD 30 12-27/01/93

2 OCDC 42 09-30/10/961 OCDC 10 18-27/12/961 OCDC 10 25/06-05/07/97

Completion 2 OCDC/UNESCO 36 15/10-9/11/98

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E. DISBURSEMENTS (in UA million)

ADF :

Year Estimates at Actual PercentageEvaluation disbursed

1989 1.70 - -1990 3.82 - -1991 4.35 0.10 0.921992 0.91 0.48 4.491993 - 0.43 4.031994 - 1.51 14.041995 2.53 23.441996 3.68 34.141997 0.80 7.39

Total disbursed 10.78 9.54 88.46Undisbursed balance 1.24 11.54Amount cancelled Nil

F. FIRMS

01. Name SACCOGENNationality ChadianResponsibility Renovation/Extension of 80 classrooms

at Lycée Félix Ebouéand at l’Ecole de Centre CEG N°2

Date of commencement of works 20.8.94Date of completion 8/5/96Basic contract amount 942.285.511 CFAFFinal contract amount 1.661.019.214 CFAF

02. FIRM SACCOGENNationality ChadianResponsibility Renovation of University of N’DjamenaDate of commencement 26/9/94Date of completion of works 8/5/96Basic contract amount 508.475.908 CFAFFinal contract amount 850.258.208 CFAF

03. FIRM CONS-BTPNationality ChadianResponsibility Renovation and extension of ENSDate of commencement 17/2/95Date of completion 19/12/96Basic contract amount 492.349.078 CFAFFinal contract amount 492.349.078 CFAF

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04. FIRM CONS-BTPNationality ChadianResponsibility Renovation and extension of Lycée la

LibertéDate of commencement 1/9/94Date of completion 10/6/96of worksBasic contract amount 895.531.655 CFAFFinal contract amount 1.105.127.255 CFAF

05. FIRM UDECTONationality TogoleseResponsibility CEG Nº 1Date of commencementof works 20/2/95Date of completionof works Site incompletedBasic contract amount 648.393.092.00 CFAFFinal contract amount 648.393.092.00 CFAF

G. SUPPLIERS

01. FIRM SOTEBNationality ChadianResponsibility Equip/Office furniture for ISSEDDate of commencementof delivery NADate of completionof delivery 8/7/96Basic contract amount 16.691.250 CFAFFinal contract amount 16.691.250 CFAF

02. FIRM TCHAMI TOYOTANationality FrenchResponsibility Procurement of vehiclesDate of commencementof delivery 20/5/91Date of completionof works 13/9/91Basic contract amount 7.513.000 CFAFFinal contract amount 7.513.000 CFAF

03. FIRM TCHAMI TOYOTANationality FrenchResponsibility Procurement of vehiclesDate of commencementof delivery 15/3/93Date of completionof works 2/7/93

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Basic contract amount 9.030.000 CFAFFinal contract amount 9.030.000 CFAF

04. FIRM RENAULT VELISSA Ltd.Nationality FrenchResponsibility Delivery of a Renault 12 BreakDate of initial delivery 10/1/94Date of actual delivery 16/4/96Basic contract amount 95.000 FFFinal contract amount 95.000 FF

05. FIRM RENAULT VELISSA Ltd

Nationality FrenchResponsibility Delivery of a Renault 12 BreakDate of initial delivery 8/2/93Date of actual delivery 11/4/94Basic contract amount 9.975.000 CFAFFinal contract amount 9.975.000 CFAF

06. FIRM REPRO-SERVICE

Nationality ChadianResponsibility Equip/supplies for ISSEDDate of initial delivery 20/7/93Date of actual delivery 16/9/93Basic contract amount 24.767.640 CFAFFinal contract amount 24.767.640 CFAF

07. FIRM REPRO-SERVICE

Nationality Chadian

Responsibility (2) Equip/supplies for Lycée Felix Eboué,La Liberté, CEG Nº1 and ISSED.

Date of initial delivery 13/7/95Date of actual delivery 25/3/96Basic contract amount 121.280.400 CFAFFinal contract amount 121.280.000 CFAF

08. FIRM BUSER Ltd.Nationality FrenchResponsibility Supply of photocopier/CEPDate of initial delivery 10/11/94Date of actual delivery 21/6/95Basic contract amount 7.590.000 CFAFFinal contract amount 7.590.000 CFAF

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09. FIRM SOCOA – TCHAD

Nationality FrenchResponsibility Supply of equipmentDate of initial delivery 4/9/90Date of actual delivery 18/4/91Basic contract amount 4.310.000 CFAFFinal contract amount 4.310.000 CFAF

10. FIRM QUINCAILLERIE LA CONCORDE

Nationality ChadianResponsibility Schools and office furnitureDate of initial delivery 21/7/95Date of actual delivery 7/2/96Basic contract amount 358.419.600 CFAFFinal contract amount 358.419.600 CFAF

11. FIRM SOGED

Nationality FrenchResponsibility Supply of rolling stockDate of initial delivery 3/7/95Date of actual delivery 4/12/96Basic contract amount 61.135.000 CFAFFinal contract amount 61.135.000 CFAF

12 FIRM PIERRON

Nationality FrenchResponsibility Schools and lab suppliesDate of initial delivery 21/8/95Date of actual delivery 29/9/97Basic contract amount 2.358.820 FFFinal contract amount 2.358.820 FF

13. FIRM HATIER

Nationality FrenchResponsibility Supply of textbooksDate of initial delivery 30/4/96Date of actual delivery 30/8/96Date of completion 29/9/97Basic contract amount 2.229.134.15 FFFinal contract amount 1.862.450.78 FF

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H. CONSULTANTS

01 FIRM TASNationality IvorianResponsibility Studies and supervisionDate of commencement 22/8/92Date of completion 14/6/96Basic contract amount 205.420.957 CFAFFinal contract amount 306.261.893 CFAF

02. FIRM CRC – SOGEMA - INCNationality CanadianResponsibility Training of trainersDate of commencement 12/9/95Date of completion December 1998Basic contract amount 6.010.200 FFFinal contract amount 6.010.200 FF

03. FIRM CRC – SOGEMA - INCNationality CanadianResponsibility Training of trainersDate of commencement 9/9/92Date of actual delivery 2/9/94Basic contract amount 3.940.000 FFFinal contract amount 3.940.000 FF

04. FIRM CRC – SOGEMA - INCNationality CanadianResponsibility Training of trainersDate of commencement 29/8/94Date of actual delivery 28/2/96Basic contract amount 96.915 CAN $Final contract amount 96.915 CAN $

05. FIRM ORTNationality EnglishResponsibility Installation of management and user

training systemDate of commencement 28/8/94Date of completion 1/6/95Basic contract amount 34.860 US$Final contract amount 34.860 US $

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REPUBLIC OF CHADSECONDARY SCHOOLS RENOVATION PROJECT

PROJECT COMPLETION REPORT

SUMMARY, CONCLUSIONS AND RECOMMENDATIONS

1. The schools renovation project (Education II) is the second project undertakenby the Bank in Chad in the area of human resources development. The object of theEducation II project is to upgrade schools’ infrastructure in the Borkou-Ennedi-Tibesti region and in N’Djamena. The project made possible the renovation andequipping of Lycée Félix Eboué, Lycée La Liberté, ex Lycée Féminin, Nº1 and 2Comprehensive Schools, l’Ecole Normale Supérieure (ENS) ; renovation of theFaculty of Arts, Languages and Social Sciences, the Faculty of Exact Sciences and theRectorate of the University of Chad. The project will equally contain a far-reachingprogramme for further training in secondary education. The project has beenimplemented at 95%. Loan disbursements were suspended as a result of theGovernment’s failure to release counter-part funding for the project.

2. The loan became effective on 29 November 1989 i.e 14 months afterapproval. Project start up was delayed by 3 years and implementation spanned aperiod of 7 years, 3 years more than was projected. On completion, project cost,exclusive of duties and taxes is estimated at UA 9.54 million, including UA 7.87million (82.49%) in foreign exchange and UA 1.67 million (17.51%) in localcurrency.

3. The objective to upgrade schools infrastructure in N’Djamena was not attaineddue to a continued increase of the number of pupils, without the attendant extensionof schools infrastructure. This results in poor supervision both with respect toinfrastructure (insufficient class-rooms, broken down sanitary facilities and obsoleteelectrical connections) as with equipment, teaching and learning aids and handbooks ;the absence of materials and consumer items for specialised class-rooms, the lack oftext books.

4. To further the sustainability of investments, it is necessary: (i) to provide inthe short run fresh investments in the secondary education sub-sector. In fact, thevery high number of pupils per classroom (between 150 and 200) leads to the rapidwear and tear of the infrastructure. Accordingly, in all the schools under the project,the sanitary facilities are out of order, because of the high numbers of users ; (ii) toassist the Government in implementing strategies geared towards the maintenance ofestablishments and equipment, based on the sensitisation and accountability of allschool users and beneficiaries, and (iii) to establish and comply with the requirednumber of pupils per classroom, in order to maintain the quality of secondaryeducation which is the “raison d’être” of the project.

5. The following factors have been prejudicial to the project’s objectives: (i) theGovernment’s failure to release counter-part funds, (ii) the gradual modifications ofthe project, (iii) the absence of project management control; (iv) the long drawnperiod of implementation during which time, the rate of enrolment grew higher and

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higher leading to persistent constraints that the project had to reduce or eveneliminate; and (v) the lack of firmness of the Bank in having its own rules compliedwith.

6. In view of the problems encountered by the project, the following measuresfor the design and execution of future operations are recommended:

- Carrying out an evaluation of the short and mid-term effects of sub-sectors upstream and downstream of that concerned by the project,enabling the latter to provide less punctual and more lasting solutions.

- Defining a strict mechanism requiring borrowing countries to providecounterpart funds for the success of Bank Group financed operations. Forinstance, for categories financed by the Bank and the borrower, that thelatter should submit to the ADB, at the end of each quarter, copies ofpayment vouchers of monies paid and corresponding to disbursementsmade by the Bank for the same period.

- Following the elaboration of the loan conditions, re-stating in the loanagreement some of the general conditions that are frequently breached andresult in loan cancellation; failure to audit the project and failure to submitquarterly progress reports etc.

- With respect to the procurement of goods and services, provide incentiveswithin the bidding system for providers of services or suppliers of goodsdepending on whether they have fulfilled the terms and conditions ofprevious contracts (with regard to Bank financed projects) within theprescribed time and within the amounts stated in their bids (except forproven unforeseen circumstances).

- Recruiting on a contract basis, the personnel of executing agencies paidfrom the loan proceeds. This has a double advantage : (i) it confides theimplementation of projects or programmes to competent structures (thebeneficiary responsible only for policy definition , planning and control)and (ii) prevents the frequent changes of executing agency officials.

- Reformulate a project, preferably proceeding with a modification of thelist of goods and services seeing that the modifications are important bothwith regard to the addition as to the abandonment of all activities

Recommendations

The Bank should show more firmness in causing borrowing member countriesto comply with the general conditions and specific conditions that govern loansgranted. This stance will lead member-countries to adopt the right attitude for thegood management of national resources. An estimated balance of UA 1.24 million ison hand. In view of the circumstances leading to the suspension of loandisbursements, it is recommended to cancel the loan balance.

1. INTRODUCTION

1.1 Bank Group operations in Chad commenced as far back as 1974. Since then,the Bank has funded 39 operations including 1 study of the education sector and 4education projects. The first education project approved in 1975 with an ADF loanof UA 3.95 million has been completed. In 1987, the Bank granted a loan in theamount of UA 0.52 million for a sectoral study which led to the Education II project,the object of this report. For the second project, approved in 1988, the ADF granteda loan of UA 10.78 million. Finally in 1991, the ADF approved the Education IVproject for which it granted a loan amounting to UA 9.21 million. The Education IIIand IV projects are on-going.

1.2 The aims of the Education 1 project was the construction and equipping of theNational Institute of Science and Education and Teachers Training Centre (TTC).The purpose of the Education II project is the renovation of schools in Chad whichmade possible the renovation of Lycée Félix Eboué, Lycée de la Liberté,Comprehensive Schools Nº1 and 2, the Ecole Normale Supérieure (ENS), the Facultyof Arts, Languages and Social Sciences, the Faculty of Exact Sciences and theRectorate of the University of Chad and their provision in equipment, furniture andsupplies. The Education III project seeks to upgrade elementary education in theBorkou-Ennedi-Tibesti (BET) region, through the construction and equipping of 50primary schools, the training of trainers and refresher courses for teachers in thisregion. As for the Education IV project, it aims at the upgrading of the quality ofsecondary education in the Borkou region, the prefectures of Batha, Logone-Oriental,Guera, Tandjilé and N’Djamena, through the renovation of 5 secondary schools andthe construction of a high school in N’Djamena.

1.3 This Education II project completion report was elaborated on the basis offindings of the Bank mission to Chad in November 1998 and based on data obtainedfrom the archives of the Project Unit in N’Djamena and in the Bank.

2 SECTORAL OBJECTIVES AND PROJECT OBJECTIVES

2.1 Project objectives

The project’s sectoral objective is to provide the country with the requisitequalified human resources necessary in its socio-economic development, withpolitical stability and improving the population’s standard of living. Education II wasprepared in a bid to assist the Government of Chad in drawing up a social sectoremergency programme. The specific objectives of the project are as follows:

The preparation of a project for the renovation of primary schools in the threeregions in Borkou-Ennedi-Tibesti,

Upgrading the quality and conditions of learning in three secondary schools inN’Djamena

The renovation of buildings in the University of Chad The quantitative and qualitative improvement of teacher training in junior and

senior secondary schools Support to primary schools inspection.

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2.2 Project description

Initially, planned for 4 years, the project comprises the following components:

I) Education Programme in the BET region (Education III)

Studies and preparation of bidding documents.

II Upgrading of Secondary Education in N’Djamena

(i) Finalisation of bidding documents for renovation works.(ii) Renovation of classrooms in Lycée Félix Eboué, the Nº1

Comprehensive School and the Lycée Féminin.(iii) Furniture, equipment and supplies, training and technical

assistance(iv) Support to secondary schools inspection.

III) Upgrading of Higher Education

(i) Finalisation of bidding documents for renovation works.(iii) Renovation of buildings at the University of Chad

IV. Actions complementary to the Education Project I

(i) Preparation of bidding documents for the extension of theEcole Nationale Supérieure (ENS)

(ii) Extension of the ENS(iii) Furniture, equipment and supplies for ENS and INSEE(iv) Training and technical assistance for ENS and INSEE.

V. Support to the National Directorate for Education Projects

(i) Equipment and vehicles(ii) Operating costs

3 PROJECT FORMULATION

3.1 Project origin

The civil war in Chad has led to the destruction of a lot of school buildings,furniture and equipment. The primary schools in the war-zones particularly in theBET region, were the most affected, the secondary and post secondary schools havenot been spared especially in N’Djamena where fighting went on for months. Withinthe framework of national reconciliation and post-war reconstruction, the Governmentof Chad has defined its priorities in order to sustain the country’s socio-economicdevelopment : one of these priorities is human resources development and renovationof schools infrastructure. To do this, the Government has requested the assistance ofthe African Development Bank for the implementation of the Education II project.

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3.2 Identification, Preparation and Evaluation

On the request of the Government, UNESCO undertook an identificationmission in February 1985 followed in January 1986 by a terms of reference elaborationmission of a sectoral study and project preparation. In October 1986, an ADB missionvisited Chad so as to finalise the terms of reference. On US AID financing, the ADBcarried out a technical preparation study on renovation and reconstruction works, theprocurement of equipment, furniture, schools and office supplies and staff training.Based on the findings of this study, an ADB/UNESCO mission visited Chad for thepreparation of the project, followed by an evaluation mission in February 1988.

3.3 Negotiations And Approval

3.3.1 Negotiations for the loan agreement took place at the headquarters of the Bankon 13 September 1988. The Chadian delegation proposed that further training forschool teachers to be carried out overseas, should be done locally. This proposalwas agreeable to the ADF. The arguments put forward by the delegation are thefollowing; (i) the existence in Chad of training institutions (ENS and INSEE) similarto those in other African regions (ii) the savings made from local training would helpin procuring teaching aids and would benefit future students ; (iii) real training wouldbe more in keeping with the nitty gritty of the country’s education system and lastly(iv) the risk that teachers trained overseas may not return home will no longer exist.

3.3.2 Following these negotiations, the project was submitted and approved by theBoard of Directors of the Bank on 20 September 1988. The loan agreement wassigned only on 28 May 1989, i.e 8 months after its approval. The date of entry intoforce was fixed for 30 November 1989 and that of first disbursement for 30December 1989.

4 PROJECT IMPLEMENTATION

4.1 Entry into force and Start-up

4.1.1. Prior to loan effectiveness the Government should fulfill the followingconditions:

(i) Commitment to make an annual budgetary allocation for the provisionof counterpart funds, in accordance with the financing plan

(ii) Commitment to mobilise additional finance sources in case of anoverrun of the project’s estimated costs.

(iii) Commitment not to use the loan proceeds for the payment of thevarious duties and taxes connected to the procurement of goods andservices necessary for the project’s implementation.

(iv) Proof of the opening of an account in a bank in N’Djamena to receivethe ADF funds for the functioning of the Directorate of EducationProjects.

(v) Commitment that the National Directorate of Education Projects willprovide office space to staff to be recruited.

(vi) The commitment to provide an annual budgetary allocation forfinancing and maintenance of renovated school buildings.

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4.1.2 There were two other conditions as follows:

(i) Submission for ADF approval, steps taken to ensure the return ofteachers trained overseas.

(ii) Submission for ADF approval a detailed plan of the different types andareas of training, including the selection criteria of candidates, dates,places and contents of each type of training as well as the institutionsor local or foreign persons in charge of such training.

4.1.3 With regard to the conditions, it should be noted that: (i) the first condition onthe commitment to make an annual budgetary allocation for the provision ofcounterpart funds was not respected ; (ii) condition Nº2 was not applied: (iii)conditions 3,4 and 5 were met ; (iv) the last condition concerning the provision of anannual budgetary allocation for financing and maintenance of renovated schoolbuildings was not satisfied. In fact, the buildings under the project lack the necessaryresources. As for the other conditions the first became null and void following thedecision to train teachers locally rather than in foreign institutions.

4.1.4 The loan became effective on 29 November 1989, 14 months after approval.The meeting of conditions precedent does not present any specific difficulties, i.e thefive conditions and the proof of the opening of an account. With respect tocommitments, the first three concern the general conditions, and the last the provisionof premises for the implementation unit and the annual budgetary allocation for thefunctioning and maintenance of renovated school buildings. It is difficult to explainthe delay of 14 months before the loan became effective. There is no informationconcerning this phase, and the absence of a good part of the data is due to the age ofthe project. In deed, since start-up, this project has been successively transferred to theformer departments of WARD and NARD before ending up at OCDC. As a result, alot of data and documents have been lost. The requisition of all project documents bya National Investigation Commission created in November 1996 by the Governmentto look into the accounts of all the Education projects in Chad aggravated thesituation.

4.2 Modifications

Studies and Supervision

4.2.1 Since project start-up was delayed, the preparatory technical studies of theEducation programme in the BET region were not conducted within the framework ofthe project but were taken into consideration during the implementation of therenovation of schools project in the BET (Education III). Later on, the technicalstudies and supervision of rehabilitation works of Comprehensive School Nº2 wereincorporated in the project.

Civil Engineering Works

4.2.2 On the proposal of the Government and following the ADF approval,renovation of the high schools and comprehensive schools was extended afterwards toinclude Comprehensive School N°.2.

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Furniture/Equipment and Supplies

4.2.3 The equipping of Comprehensive School N°.2 in furniture equipment andsupplies has been added to this category of expenditure.

Training and Scholarships

4.2.4 The major change made to the training programme is local training, providedby the Higher Institute of Education Sciences of 250 teachers in lieu and place ofoverseas training. This change was decided during the loan agreement negotiationsand approved by the Fund. Local and overseas training of secondary educationinspectors was cancelled since it was not given indepth consideration.

4.2.5 A Memorandum of Understanding was signed during project implementationbetween the CRC – SOGEMA and the Ministry of Education for a 4-year trainingcourse in Canada for the Project Coordinator. The amount of the scholarship(36,274.553 (CFAF) was paid into the account of the CRC-SOGEMA. Since thetravel authorisation was not granted, this sum is still in the account of the CRC-SOGEMA. Consultations are on-going with the Disbursement Division as regardsits utilisation.

4.2.6 Finally, it was authorised to provide local training for a period of 2 years forthe Accountant and Secretary of the Project Unit. The former attended a 2-monthrefresher course in corporate management in France. He was later transferred to anEducation project financed by the IDA.

Technical Assistance

4.2.7 Technical assistance initially not included would be provided in view of theintroduction of a computerised management system and user training programmes, foraccountants working in Education projects II, III and IV. The consultant was recruitedaccording to the Bank’s rules and procedures.

4.3 Implementation Schedule

4.3.1 It was expected that the project will be implemented in 4 years startingJanuary 1989. The table here-under shows the slippages between the initialimplementation schedule and the actual project implementation schedule.

Activities Estimated Schedule Actual Schedule

Loan approval August 88 20 November 88Recruitment of Consultants January/June 89 Sept. 90/Oct. 92Technical Studies &Bidding Documents April/August 89 Nov. 92/Jan. 94Invitation to tender forRehab/extension works August/October 89 March/April 94Examination awardsand contracts Nov/December 89 April/July 94Renovation/extension Jan 90/March 91 Aug. 94/Dec. 96

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Tenders for equipment/Furniture/supplies July/September 90 Jan/March 95Examination awardsand contracts Oct/December 90 May 95Delivery and installation Jan/September 91 Oct 95/April 96Training & TechnicalAssistance July 89/Dec. 92 March 92/Oct. 98

4.3.2 The implementation schedule was not respected. The start-up of activitiesinitially planned for January 1989 took place only in September 1991, withconsultations for the recruitment of a Consultant in charge of technical studies andworks supervision. Following this, it took 18 months to reach an agreement betweenthe ADF and the Government with respect to the contract award. The Consultantmade a slow start in preparing the documents (state of buildings for renovation,summary draft project and bidding documents). Commenced in November 1992, thestudies were to be completed in 1994 with the production of the bidding documents.Construction contracts were implemented with an average delay of 9 months over theestimated implementation schedule. Invitations for the procurement of equipment,furniture and supplies were launched 4½ years after the initial launch date.

4.3.3 The training programme made a very slow start. The following componentshave been implemented: (i) the training of 50 Bachelors of Science; (ii) 15 Heads ofInstitutions trained in administration and management; (iii) 200 comprehensive schoolgraduate teachers with a degree awarded upon successful completion of the first twoyears of University studies and (iv) the first component of the continuous training of70 comprehensive school teachers and 30 secondary school teachers. These trainingcourses took place at the Higher Institute for Education Sciences.

4.3.4 Furthermore, it had been envisaged to provide overseas training to 4 teachersfrom the ex ENS and 4 from the ex INSE. On the proposal of the Government and theagreement of the ADF, these training courses took place at the Higher Institute forEducation Sciences (ENS + INSE). The savings thus made were used to train 22teachers from the H.I.E.S in Canada (3 teachers abandoned the training course).Training took place under the supervision of professors from the University ofQuebec at Three Rivers. Commenced in 1995, the training course ran into diversetechnical and financial problems, and was finally completed in December 1998 afterthe presentation of a thesis. The last invoices of the CRC-SOGEMA Consultant in theamount of 153 million CFAF are still pending due to the suspension of all loandisbursement since February 1997.

4.3.5 At evaluation, the amount estimated to meet the operating costs of theDirectorate for Education Projects was insufficient. Estimated at UA 18.420 or 0.15%(7.57 million CFAF) of the total cost of the project, the allocated amount wasincreased to UA 219,000 following the revision of the list of goods and servicesapproved by the ADB in November 1995.

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4.4 Reporting

4.4.1 Thirteen quarterly reports, from January 1992 to December the 1995 may havebeen submitted to date by the Government. These reports were sent to former NARDdepartment. Only one of these quarterly reports (January/March 92) is presentlyavailable. OCDC has received only one quarterly report covering the first six monthsin 1996. The report on the 1st quarter of 1992, very succinct, does not provide anyuseful information, especially with regard to the project’s financial situation. On thecontrary, the bi-annual report from January to June 1996 is more in keeping with theBank format. Realisations and problems encountered are indicated, as well asexpected activities and status of disbursements. This report examines the problems,proposes certain recommendations and draws up an implementation schedule ofoutstanding activities.

4.4.2 At the last project supervision mission, the Project Implementation Unitsubmitted a preliminary version of the borrower’s completion report. This version,which remains to be finalised is very brief and does not include all the sectors of theformat communicated to the Government by the Fund, as a result it provides verylittle information. To date, the final version of the report has not been communicatedto the Bank.

4.5 Procurement of Goods and Services

4.5.1 The procurement of goods and services was done in conformity with theprocedures defined in the evaluation report.

- Competition on the basis of a short-list for technical studies andsupervision of works.

- International competitive bidding for renovation and extension works.

- Local competitive bidding for the procurement of furniture for theDirectorate for Education Projects (DEP) and Inspectorate.

- International competitive bidding for the procurement of furniture,equipment and supplies.

- Local shopping for the procurement of vehicles for the DEP.

- Short-list for the recruitment of technical assistance.

4.5.2 The examination of bids and awards of contracts for the supervision ofrenovation works were finalised with a lot of difficulty.

4.6 Sources of Finance and Disbursements

4.6.1 The sources of finance and financing plan by source and by category ofexpenditure were as follows.

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Table 4.1Source of Finance at Evaluation

(in UA million)

Sources F.E. % F.E L.C % L.C Total % TotalADF 9.32 86 1.46 14 10.78 90Government

0.00 0 1.21 100 1.21 10

Total 9.32 2.67 11.99

Table 4.2Financing Plan by Source and Category of Expenditure

(in UA million)

Category of Expenditure ADF Govt.L.C

Total %Categ.F.L. L.C. Total F.E. L.C. Total

A. Studies and Supervision 0.93 0.10 1.03 0.00 0.93 0.10 1.03 8.65B. Renovation/Extension 3.78 0.71 4.49 1.21 3.78 1.92 5.70 47.61C. Furniture 0.77 0.26 1.03 0.00 0.77 0.26 1.03 8.55D. Equipment/Supplies 1.73 0.21 1.94 0.00 1.73 0.21 1.94 16.13E. Training/Scholarships 1.38 0.16 1.54 0.00 1.38 0.16 1.54 12.83F. Technical Assistance 0.73 0.00 0.73 0.00 0.73 0.00 0.73 6.08G. Functioning 0.00 0.02 0.02 0.00 0.00 0.02 0.02 0.15Total 9.32 1.46 10.78 1.21 9.33 2.67 11.99 100

4.6.2 The initial schedule of expenditure per annum and per category of expenditureand actual expenditure per annum and per category of expenditure are indicated intables 4.3 and 4.4 below.

Table 4.3Estimated disbursements per annum and category of expenditure

(in UA million)

1989 1990 1991 1992 TotalA. Studies and Supervision 0.27 0.46 0.31 0.00 1.04B. Renovation/ Extension 1.14 3.13 1.44 0.00 5.72C. Furniture 0.00 0.19 0.74 0.10 1.03D. Equipment/Supplies 0.00 0.04 1.57 0.31 1.92E. raining/Scholarships 0.34 0.41 0.41 0.37 1.54F. Technical Assistance 0.18 0.23 0.18 0.13 0.73G. Functioning 0.00 0.01 0.01 0.01 0.02Total Cost 1.94 4.48 4.66 0.91 11.99

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Table 4.4Actual expenditure per annum and per category of expenditure

(in UA million)1989 1990 1991 1992 1993 1994 1995 1996 1997 Total

A. Studies and Supervision 0.00 0.00 0.00 0.09 0.03 0.08 0.08 0.16 0.00 0.43B. Renovation/Extension 0.00 0.00 0.00 0.00 0.00 1.21 2.13 2.52 0.00 5.86C. Furniture 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.47 0.00 0.47D.Equipment/Supplies 0.00 0.00 0.03 0.00 0.14 0.02 0.01 0.28 0.47 0.95

E. Training/Scholarships 0.00 0.00 0.02 0.05 0.04 0.04 0.23 0.25 0.22 0.84F. Technical Assistance 0.00 0.00 0.00 0.23 0.18. 0.10 0.01 0.00 0.00 0.52G. Functioning 0.00 0.00 0.05 0.12 0.05 0.07 0.08 0.00 0.11 0.47

Total cost 0.00 0.00 0.10 0.48 0.43 1.51 2.53 3.68 0.80 9.54

4.6.3 On completion, the cost of the project exclusive of all taxes and duties isestimated at UA 9.54 million including UA 7.87 million (82.49%) in foreignexchange and UA 1.67 million (17.51%) in local currency. A comparison of tables 4.3and 4.4 here under illustrates the following facts:

- project start-up was delayed by 3 years and its implementation took 7years, i.e. 3 years more than expected;

- the cost of 2 categories, renovation and extension (as a result of thenumerous additional clauses to the contracts) and functioning exceededthe actual estimates. Even taking into account the fact that it wasdecided that the project will not pay any salaries to personnel of theDEP (salaries paid through a World Bank project) functioning costswere largely under-estimated. In fact an allocation of UA 18.421 for aperiod of 4 years earmarked for the operating costs of the DEP provedto be grossly insufficient.

- the effective costs of the remaining categories (Studies/Supervision,Furniture, Equipment/Supplies, Training and Technical Assistance)were well below fifty per cent of estimates on the average.

4.6.4 Given that that the Government failed to make any disbursements from itscounterpart funding, the actual expenditure (Table 4.4) and actual disbursements(Table 4.5) per annum and per category of expenditure are identical, as the projectwas entirely funded from the loan resources.

Table 4.5Actual ADF disbursements per annum and per category of expenditure

(in UA million)

1989 1990 1991 1992 1993 1994 1995 1996 1997 Total

A.Studies and Supervision 0.00 0.00 0.00 0.09 0.03 0.08 0.08 0.16 0.00 0.43B. Renovation/Extension 0.00 0.00 0.00 0.00 0.00 1.21 2.13 2.52 0.00 5.86C. Furniture 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.47 0.00 0.47D. Equipment/Supplies 0.00 0.00 0.03 0.00 0.14 0.02 0.01 0.28 0.47 0.95E. Training/Scholarships 0.00 0.00 0.02 0.05 0.04 0.04 0.23 0.25 0.22 0.84F. Technical Assistance 0.00 0.00 0.00 0.23 0.18 0.10 0.01 0.00 0.00 0.52Functioning 0.00 0.00 0.05 0.12 0.05 0.07 0.08 0.00 0.11 0.47Total Cost. 0.00 0.00 0.10 0.48 0.43 1.51 2.53 3.68 0.80 9.54

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5. OPERATIONAL PERFORMANCE

5.1 Overall Evaluation

5.1.1 Consultations for the recruiting of a consultant in charge of technical studiesand supervision of works ran into problems which contributed to the delay in projectimplementation. With preference for a technical bid, the Tender Board decided toaward the contract to DCO-AFI in the place of TAS, the lowest bidder. The TenderBoard thought that TAS had deliberately undervalued its bid. The Board decided andrecommended that the Government should negotiate with TAS rated first at the end ofthe examination of bids carried out at the Bank headquarters. At first, the Governmentchallenged the Bank’s recommendation, and it took 18 months to find a solution tothe problem. Finally, the contract was awarded to TAS.

5.1.2 The technical studies and tender documents for renovation works werefinalised after a delay of seven months. In addition to this, the architecturalprogramming was not exhaustive. This and the inclusion of Comprehensive SchoolN°.2 in the project gave rise to additional works and a covenant in the amount of27,964,952 FCFA representing 13.61% of the consultant’s basic contract. Thiscovenant came after a first covenant amounting to 73,437,294 CFAF andcorresponding to 35% of the contract following a price review and consecutive to thedevaluation of the CFAF. From an amount of 205,420,957 CFAF the contract amountrose to 306,261,893 FCFA, corresponding to an increase of 49.09%. Theseshortcomings in architectural programming and technical studies were equallytranslated by a delay of 7 months in the finalising of tender documents.

5.1.3 Competitive bidding for rehabilitation works equally ran into problems thatdelayed the award of contracts and thus the commencement of works. Invitations tobid were launched in February 1994. The opening and examination of bids took placeon 16 April 1994. The outcome of the examination of bids as well as award proposalswere communicated to the ADF on 11 May 1994. The award of 3 of the 5 batches ofthe competitive bidding took place on 9 June 1994. The award of the remaining twobatches posed certain problems, as one of the bidding firms challenged its elimination.The problem was to be resolved on 30 August 1994.

5.1.4 With regard to execution, it was found during the supervision mission thatrenovation works were below standard, as judged by the state of the renovatedbuildings. Besides, all the firms exceeded their deadlines. The reserves made at theprovisional reception of these buildings have never been lifted. Finally, except for thefirm awarded the contract for the renovation of Comprehensive School N°.1(interruption before completion of works) all the other firms exceeded the amounts oftheir respective contracts. Indeed 3 contracts out of 5 were the subject of covenantsrepresenting 76.28%, 67.22% and 23.40% of the basic contracts.

5.1.5 It is equally worth noting the interruption of renovation works atComprehensive School N°.1 before completion. The situation was due to politicalevents when the Government requisitioned the Comprehensive School buildings, thisled to wear and tear that the firm refused to redo. Because of this situation, theequipment delivered (transformer, refrigerators and freezers, material and equipment

11

for the science, physics, chemistry and natural sciences laboratories) has still not yetbeen installed and are kept in poor conditions.

5.1.6 From the financial view point, it should be noted that the Government failed torelease its counterpart funding. According to the Chadian authorities, the Governmenthad provided the project’s counterpart funding in kind (land made available to theproject, value of buildings for rehabilitation, salaries of national and local staffseconded to the project etc). It was however agreed in the loan agreement that theGovernment’s contribution to the project financing fixed at 10.1% of the total cost;would serve exclusively in co-financing, renovation/extension works to the tune of21.22%. However, in November 1995, the Bank was to approve the list of goods andservices modifying the respective participation of Government and the ADF inconstruction costs. This new list of goods and services provided for the integralfinancing of renovation and extension works by the ADF. The withdrawal of theGovernment’s contribution to the financing of this category was not compensated by apro rata increase of its contribution in other categories of expenditure.

5.1.7 Informed of this situation, the Legal Department, recommended bymemorandum dated 16/10/1996, the suspension of all disbursements until thecorresponding amount of the Government’s contribution was paid. The ADF notifiedthe Government of this decision as well as the suspension of disbursements inFebruary 1997. To date, the Government has still to release the counterpart funding.The project was to be executed in four years as from January 1989. Not only start-upwas delayed by 3 years, but implementation spanned a period of 7 years. In view ofthese constraints, operational performance is poor.

6. INSTITUTIONAL PERFORMANCE

6.1 Secondary Education

6.1.1 The objective to improve the state of teaching establishments in N’Djamenawas not attained due to the growing number of pupils, without the attendant extensionof school buildings. This resulted in poor supervision both at the level ofinfrastructures (insufficient classrooms, sanitary facilities that are out of use andelectric installation that are out of order) as well as that of equipment, materials,teaching and learning aids, the lack of material and consumables for specialised class-rooms and books.

6.1.2 The increased number of pupils led to over-crowding in senior secondaryeducation establishments where in the 5th and 6th years, pupils were between 120 to180 in a classroom. In 1989, during the loan signing some classes already had about150 pupils and the average supervision rate was 1 teacher for 130 pupils. Thisimbalance that the project sought to redress and which concerned a total number of42,529 pupils in secondary schools, worsened, as there was a growth rate of 230%with the number of pupils rising to 97,011 in 1996. It is however worth mentioningthat the high enrolment rate illustrates a strong attraction of the project’sestablishments. This observation shows the high impact of the project, since withoutthe project, the above-mentioned situation as portrayed would have been worse.

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6.1.3 The purpose of renovating school buildings and classrooms, and procuringmaterial and equipment was to improve reception facilities for pupils and upgrade thequality of education. However, the considerable increase in the number of pupils inthe project’s establishments (table 9.1) has led to very high occupancy rates and over-use of the infrastructures, resulting in a advanced state of disrepair of buildings andequipment. This situation was made worse in Lycée Félix Eboué and Lycée de laLiberté: where junior and secondary sections occupy the same class-rooms from 12.30pm to 6 pm and from 7.15 a.m to 12.30 pm respectively. In Lycée Félix Eboué thereare eight toilet facilities with 8 water closets, i.e 64 water closets for a total number of13.276 pupils. Because of over-use, the toilets are all out of order. In general,classrooms are over-crowded, and there are between 150 and 200 pupils in aclassroom. In some classrooms the desks are arranged in such a way that pupils aresqueezed in four or fives to a desk, resulting in an advanced state of degradation ofschool furniture.

Table 6.1

Increase of pupils in the project’s establishments(from 1991-1998)

1991 1997 1998 Number ofclassrooms

Lycée Félix Eboué (1st cycle) NA 4,846 5,675 44*

Lycée Félix Eboué (1st cycle) 3,837 7,488 7,800Lycée de la Liberté (1st cycle) NA 2,493 3,480Lycée de la Liberté (1st cycle) NA 2,168 2,538 24*

Compreh. Sc.Nº 1 542 2,391 3,000 24

Compreh. Sc.Nº 2 3,391 NA 6,069 32

*Junior and secondary school pupils occupy the same classrooms from 12.30 p.m to 6p.m and from 7.15 a.m to 12.30 p.m respectively.

6.2 Training of Trainers

6.2.1 At the time of the project’s appraisal in 1988, the number of pupils insecondary education was about 42.529. There were under the supervision of 327teachers including 70 graduate teachers and 257 comprehensive school teachers;corresponding a rate of supervision of one teacher for 130 pupils. Among theseteachers facing such plethoric numbers, the majority had no teaching experience. Inorder to decrease the number of pupils per classroom on one hand and face theincreasing number of pupils on the other, the estimated needs stood around 1000additional teachers including 250 graduate teachers. On their recruitment, thesefuture teachers will receive training at the ENS and training in teaching and Educationsciences at the NIES.

6.2.2 The ENS is the only institution that provides training for secondary schoolteachers, education advisers, secondary education inspectors and teachers from theTeacher Training College. At the time of appraisal, the ENS had only 9 classroomsand 20 lessons were being taught simultaneously. This obliged the teachers todispense lessons at random, moving from one free classroom to another and obliging

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the authorities to schedule lessons from 7 a.m to 8 p.m. In these circumstances, theENS was able to train only comprehensive school teachers in two years.

6.2.3 The aim of the National Institute of Education Sciences was to carry out areform of the education system in line with the political, economic and culturalorientations of the country. It has the mandate to establish scientific and technicallinks with foreign institutions of the same vocation. The Institute provides training tostudents and probationers in education sciences in line with their speciality and level,it provides teaching aids, continuous teacher training and refresher courses for staff incollaboration with the on-line technical directorates concerned.

6.2.4 To enable the National Institute for Education Sciences and the Ecole NormaleSupérieure to fully accomplish their missions, these two institutions were mergedduring the course of the project’s implementation into a single entity, called theHigher Institute of Education Sciences (HIES).

6.2.5 The merger of these two institutions brought about new arrangements inteacher training programmes. The University will be in charge of academic trainingup to the level of the degree awarded upon successful completion of the first twoyears of University studies for Comprehensive School teacher’s and the Bachelor ofArts for high-school teachers. The Institute will provide graduates with professionaltraining, will be responsible for their continuous training and the production ofteaching aids. The Institute will equally provide training for supervisory staff, head ofteaching institutions, education advisers and inspectors.

6.2.6 The Institute has between 1992 and 1996 trained 240 teachers including 103 inscience, 15 heads of teaching institutions in school management and administrationand conducted a continuous training seminar for about one hundred teachers fromschools and colleges. To help the institute fully accomplish its mission, the projecthas financed the training of 22 teacher trainers from the NIES.

6.3 Performance of Consultants, Contractors, Suppliers and Executing Agency

Performance of Consultants

6.3.1 The services of the consultant recruited for the carrying out of technicalstudies, preparing tender documents and works supervision were unsatisfactory,taking into consideration the delay of about 7 months in the conduct of the studies, thepoor quality of the studies and supervision of works which entailed the introduction ofadditional clauses to the works supervision and civil engineering contracts. Anadditional clause representing 49.09% of the basic contract for supervision wassigned. Numerous signs of bad workmanship have been detected and they have beenthe objective of reserves made during the provisional reception of the buildings.These reserves have never been lifted. Their performance is therefore unsatisfactory.

6.3.2 The services of the technical assistance support to teaching were satisfactory.The performance of technical assistance for the installation of a computerizedaccounting system and user training was equally poor since only the first componentof these services has been realised.

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Performance of Contractors

6.3.3 Generally, workmanship is poor. The deadline for the execution of worksrecorded average delays of roughly 9 months. In fact, the disorganisation of the firmsand shortcomings in logistics resulted in frequent industrial actions and stoppages.Numerous signs of bad workmanship detected during the provisional reception of thebuildings have been the object of reserves, which reserves have never been lifted.The performance of Contractors is unsatisfactory.

Performance of Suppliers

6.3.4 On the whole, the procurement of goods (furniture, equipment and supplies)was carried out smoothly. Practically all the contracts were implemented at theagreed prices. Out of 13 contracts, only one was the object of an additional clausewhich in fact revised downwards the final amount of the contract. The performanceof suppliers is satisfactory.

Executing Agency

6.3.5 The project’s implementation and management was confided to the ProjectImplementation Unit under the supervision of the Directorate of Education Projects(DEP) of the Ministry of Education. No audit exercise was planned for the project.The absence of this instrument of control encouraged drifts that punctuated theproject’s implementation. Other activities that were not envisaged in the evaluationreport were undertaken.

6.3.6 As a consequence to the poor management of Education projects II, III and IVfinanced by the ADF, the Government set up a Project Management Board in 1996.The findings of this Board led to the imprisonment and dismissal in November 1996of the Coordinators of three Project Implementation Units and the creation of a singlebody in charge of the implementation of the three education projects, i.e theEducation Project’s Follow-up Unit, under the supervision of the DEP of the Ministryof Education. It was later on, in 1997 that the Government commissioned an audit ofthe project by the Auditor General’s Office. According to the report, the followingelements have had a negative impact on the project’s implementation: (i) theinexistence of any form of control, the only verifications were those undertaken by theADF supervision missions; (ii) the poor organisation of firms, their short-comings inlogistics which was translated by the long-drawn deadlines and considerable costover-runs; (iii) the slow disbursements of the Bank and (iv) the Governments failureto release counterpart funds. In conclusion the performance of the executing agencywas poor.

7. SOCIAL AND ENVIRONMENTAL EFFECT

7.1 Social Impact

The project made it possible to upgrade the quality of teaching in theestablishments under the project. However, this improvement is mitigated by theconsiderable increase of pupils in the said establishments. One can safely say that theproject has provided young Chadians with a better foundation in view of obtaining the

15

training and diplomas that will permit them to contribute to the country’sdevelopment. Without the project the actual situation would have been worse than atappraisal.

7.2 Environmental Effects

The project has had no negative effects on the environment. The newbuildings and the renovation of the existing infrastructure were implementedaccording to standards in force concerning sanitation and the evacuation of wastewater. However, as a result of the very high numbers of pupils in establishmentsunder the project, the sanitary facilities proved inadequate and most of them are out ofuse. This has led to environmental and health problems within the project’sestablishments. On the other hand, the renovation of the high schools, comprehensiveschools, the Rectorate of the Faculty of Arts, Modern Languages and Social Sciences,the Institute of Exact and Applied Sciences, the National Institute of Social Sciences;ENS and NIES have greatly contributed in enhancing the architectural beauty of thecity. In fact, N’Djamena has greatly suffered from the effects of civil war, manyeducation establishments bare the traces of fighting.

7.3 Impact on Women

In 1988, the impact of projects on women were not taken into account in theappraisal reports. However, the proportion of secondary school girls is on theincrease. In fact, at appraisal, girls represented 15.6% of pupils in secondary schools.In 1997, this rate rose from 20% at the national level to 25% in the project’sestablishments.

8. SUSTAINABILITY

8.1 The constant increase in the resources allocated to education, as indicated intable 8.1 here-under shows the priority accorded to this sector by the Government.Parallel to efforts made by the Government, the Parent Teacher Association (PTA) ismore and more involved in education financing. At the Lycée de la Liberté andComprehensive School No 1, five and seven teachers have been recruited respectivelythrough the funds provided by the PTA in charge as well of operating costs in theformer establishment.

Table 8.1

Evolution of State Budget and Education Budget from 1988 to 1997(in CFAF million)

1988 1989 1990 1991 1992 1993 1994 1995 1996 1997State Budget 25,743.8 40,145.1 40,107.0 40,925.9 - -- 70,864.9 61,652.0 74,620.0 73,126.0Education 2,848.1 5,161.3 4,608.1 6,563.0 - 8,572.2 9,617 10,126.4 11,954.4 14,635.9Percentage 11.06 12.86 11.49 16.04 - 13.60 16.40 16.04 20.01

8.2 To sustain the Government’s efforts and increase the sustainability ofinvestments, it is necessary (i) to provide new short-term investments for thesecondary education sector. The occupancy rate of classrooms is very high,oscillating between 150 and 200 pupils, and resulting in the rapid deterioration of the

16

infrastructures. Consequently, in almost all the project’s establishments, the sanitaryfacilities are out of use as they were not designed for too many users; (ii) to encouragethe Government to implement strategies for the maintenance of establishments andteaching handbooks, and equipment based on the sensitisation and accountability ofall school users and beneficiaries and (iii) to establish and comply with the requirednumber of pupils per classroom, in order to maintain the quality of secondaryeducation which is the purpose of the project.

9. PERFORMANCE OF THE BANK AND THE BORROWER

9.1 Performance of the Bank

9.1.1 There is an absence of necessary documentation due to the age of the project.This situation is aggravated by the following facts that (i) from the Bank’s side, theproject has been supervised by three different departments and (ii) from theGovernment’s side, the requisition of the project’s archives for the purposes ofenquiries carried out by the Higher Council of the Transition (HCT). Thus, it has notbeen possible to list all the supervision missions that have been undertaken by theBank. The project has been supervised four times since the creation of OCDC in1996.

9.1.2 The lack of firmness in the application of its own regulations, the approval offrequent modifications of activities initially planned have considerably hindered theproject. The Bank’s performance is considered poor.

9.2 Performance of the Borrower

Well before the project’s effective start-up, the borrower’s performance hadbeen very poor. After approval, it took 8 months and 14 months respectively beforethe loan agreement was signed for the loan to become effective. During the course ofproject implementation, the absence of control of the implementation unit by theauthorities, the absence of a firm hand on consultants, the Government’s failure torelease the counter-part funding have been prejudicial to the project particularly theGovernment’s failure to release counter-part, funding, leading to the suspension ofdisbursement and the shelving of the training programme, which was one of theproject’s major objectives. This situation and the repeated deadlines to meetconditions precedent to disbursement have rendered performance only fair.

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10. OVERALL PERFORMANCE AND RATING

10.1 Performance of project implementation

EVALUATION CRITERIA RATING OBSERVATION1. Compliance with implementation schedule 1 The project took off with a delay of 3 years and

implementation took 7 years i.e two yearsmore than was expected.

2. Compliance with schedule of disbursements. 1. The Government made no disbursements on itscounterpart funding. Loan disbursements werespread over 7 years instead of 4 years.

3. Compliance with terms and conditions ofcontracts.

1. On average most sites have recorded a delay of9 months, 3 out of 5 contracts regardingrehabilitation works have been subject toadditional clauses representing 76.28%,67.22% and 23.40% of basic contracts. Thereserves made during the provisional receptionwere not lifted..

4. Consistency between supervision andreporting

2. Supervision missions have been regular andhave made it possible to identify majorproblems. However previous supervisionmissions did not stop the project from goingoff course.

5. Satisfactory operation 1. The growing increase of pupils without theattendant extension of infrastructure, broughtback or accentuated the situation that theproject should have helped to improve.

Total 1.2Overall evaluation of implementationperformance.

Poor Frequent changes at the head of the Ministry ofEducation.

10.2 Bank Performance during Project Cycle

EVALUATION CRITERIA RATING OBSERVATION1. Identification 2 UNESCO undertook the identification mission

in February 1985 on the request of theGovernment.

2. Preparation 2 The project was prepared on the basis of asectoral study. The project’s matrix was notprepared, as at the time, it was not required inthe format.

3. Evaluation 2 The project was evaluated on the basis of apreparation report consequent to a sectoralstudy.

4. Supervision 1 Although the project was well supervised, theresults have been poor.

Overall assessment 1.75

11. CONCLUSIONS, LESSONS AND RECOMMENDATIONS

11.1 Conclusions

11.1.1 The project attained 3 out of 5 of its set objectives (i) the renovation of schoolbuildings; (ii) the renovation of the buildings of the University of Chad, (iii) thetraining of teachers of both junior and secondary schools and trainers from the NIES.In the light of these results, the other objectives here below have only been partiallyattained:

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- upgrading of the quality and conditions of study at the three secondaryschools in N’Djamena due to the high numbers of pupils;

- support to education inspection.

11.1.2 The failure to attain the last objectives, and the high numbers of pupils perclassroom and the over-use of equipment in schools and colleges have had negativeeffects on the achievements of the objectives attained.

11.2. Lessons

In view of the problems encountered by the project, the following measuresare recommended for the design and execution of future operations:

- Carrying out an evaluation of the short and mid-term effects of sub-sectors upstream and downstream of that concerned by the project,enabling the latter to provide less punctual and more lasting solutions.

- Defining a strict mechanism requiring borrowing countries to providecounterpart funds for the success of Bank Group financed operations. Forinstance, for categories financed by the Bank and the borrower, that theborrower submits to the ADB, at the end of each quarter, copies ofpayment vouchers of funds paid and corresponding to disbursements madeby the Bank for the same period.

- Following the elaboration of the loan conditions, re-stating in the loanagreement some of the general conditions that are frequently breached andresulting loan cancellation; failure to audit the project and failure to submitquarterly progress reports etc.

- With respect to the procurement of goods and services, provide incentiveswithin the bidding system for providers of services or suppliers of goodsdepending on whether they have fulfilled the terms and conditions ofprevious contracts (with regard to Bank financed projects) within theprescribed time and within the amounts stated in their bids (except forproven unforeseen circumstances).

- Recruit on a contract basis, the personnel of executing agencies paid fromthe loan proceeds. This has a double advantage : (i) it confides theimplementation of projects or programmes to competent structures (thebeneficiary responsible only for policy definition , planning and control)and (ii) prevents the frequent changes of executing agency officials.

- Reformulate a project, preferably proceeding with a modification of thelist of goods and services seeing that the modifications are important bothwith regard to the addition as to the abandonment of activities (training ofInspectors)

- Supervision of projects at least twice a year.

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11.3. Recommendations

11.3.1 The Bank should show more firmness in causing borrowing member countriesto comply with the general conditions and specific conditions that govern the loansgranted them. This stance will lead member-countries to adopt the right attitude forthe good management of national resources.

11.3.2 An estimated balance of UA 1.24 million is on hand . In view of thecircumstances leading to the suspension of loan disbursements, it is recommended tocancel the loan balance.

Annex 1REPUBLIC OF CHAD

ADMINISTRATIVE MAP

Annex 2Page 1 of 2

RETROSPECTIVE MATRIX OF THE EDUCATION II PROJECT: CHAD

HIERARCHY OF OBJECTIVES

OBJECTIVELY VERIFIABLE INDICATORS

EVALUATION ACHIEVED MEANS OF VERIFICATION ASSUMPTIONS (VERIFICATION)A. SECTORAL OBJECTIVE

1. Provide the country withqualified human resourcesrequired to ensure its economicdevelopment.

1.1 Increased enrolment insecondary schools.

1.1 From 41.974 pupils, 70graduate teachers and 226comprehensive school teachers in1986, these numbers have increasedto 97.011; 1004 and 595respectively in 1996.

1.1 Statistics of the Ministry ofEducation.

(Sectoral objective evolving towardsnational objective)

B. PROJECT OBJECTIVE

1. Upgrade primary schoolinfrastructure in the three BETregions as well as those ofsecondary and higher educationestablishments in the capital,N’Djamena.

2. Upgrading of infrastructures atthe University of Chad.

3. Consolidation of Education Iproject.

4. Quantitative and qualitativeupgrading of teacher training injunior and secondary education.

1.1 Preparation of the primaryschools renovation project in threeBET regions in 1990.

1.2 Improved quality and conditionsof teaching in 3 secondary schoolsin N’Djamena as early as 1992.

2.1 Renovation of Universitybuildings.

3.1 Extension of ENS. Provision offurniture, equipment and supplies atENS and NIES.

4.1 Training of teachers andsecondary education trainers asfrom 1989.

4.2 Training of primary schoolteachers as from 1989.

1.1 The technical preparatorystudies of the education programmein the BET region were conductedoutside the framework of theproject.

1.2 High Schools andcomprehensive .schools renovatedand equipped.

2.1 Renovation of Rectorate andfaculties at the University of Chad.

3.1 Extension realised. Merger ofENS and NIES.

4.1 Training provided partially.

4.2 Training not provided.

1.1 Bank evaluation andsupervision report andGovernment’s quarterlyprogress reports.

1.2 Ditto 1.1

2.1 Ditto 1.1

3.1 Ditto 1.1

4.1 Ditto 1.1

4.2 Ditto 1.1

Project objective towards sectoralobjective.Security in the country.Pursuance of the policy ofreunification reconstruction, andimprovement of standards of livingof the populations reduction ofpoverty.

Annex 2Page 2 of 2

C. REALISATION EVALUATION ACHIEVED MEANS OF VERIFICATION ASSUMPTION VERIFICATION1. Renovation and equipping ofhigh schools and comprehensiveschools.

2. Equipping of primary educationinspectorate.

3. Upgrading of Higher Education.

4. Consolidation of Education 1project.

5. Training for secondary schoolteachers, from ENS and primaryeducation inspectors.

1.1 Two high-schools and 1comprehensive school rehabilitatedand equipped.

2.1 Three regional inspectoratesequipped.

3.1 Renovation of the Faculty ofArts, Social Sciences and ExactSciences and the Rectorate of theUniversity of Chad.

4.1 Extension of E.N.S provision offurniture, equipment and supplies toENS/NIES.

5.1 50 Bachelors of science, 15heads of establishments, 50advisors, 200 future Comp. Schoolteachers, 30 future high-schoolteachers, 70 Comprehensive Schoolteachers, 30 high school teachers, 8teachers for the HIES, 10 inspectorstrained and operational as from2001.

1.1 Two high schools and 2comprehensive schools renovated,equipped and in operation as from1992.

2.1 Three regional inspectoratesequipped.

3.1 The Faculty of Arts, SocialSciences, Exact Sciences and theRectorate of the University of Chadrenovated and in operation as from1996.

4.1 ENS extended and merged withthe National Institute of EducationSciences into Higher Institute ofEducation Sciences (HIES).

5.1 22 teacher-trainers and 240teachers (including 103 in sciencesubjects) trained: 15 heads ofestablishments trained in schoolsadministration and managementbetween 1992 and 1998.

Bank evaluation and supervisionreports. Government progressreports. Bank report of reception ofworks and delivery of equipment.

D. ACTIVITIES

1. Recruitment of Consulting offirm

2. Architectural and technicalstudies Elaboration of list ofequipment/Furniture/Supplies3. Launch Invitation to Bid.4.Construcion/renovation. DeliveryEquipment/Furniture and supplies.

5. Supervision

6. Identification of teaching stafffor training as well as trainers.

7. Training of teachers, secondaryeducation trainers and primaryeducation inspectors.

8. Selection of consultants.

Resources in UA million

(A) Studies/Supervision 1.04(B) Renovation/Ext. 5.72(C) Furniture 1.03(D) Equip/Supplies 1.92(E) Training/Scholarships 1.54(F)Tech.Assistance 0.73(G) Functioning 0.02Total 11.99

Resources in UA million

(H) Studies/Super. 0.43(I) Renov/Ext. 5.86(J) Furniture 0.47(K) Equip/Supplies 0.95(L) Training/Scholar. 0.84(M) Tech. Assist. 0.52(N) Functioning 0.47TOTAL 9.54

Set towards realisation

Timely release of Government.counterpart funds

Disbursements not suspended dueto arrears.

ANNEX 3

REPUBLIC OF CHAD

MEBSA

DGEN

DCAPLN DAAFM INSH ISSED DEE DES DET DEA

Museum ENI ENS H.S. Tech. SchoolsC.S. Tech. Colleges

CRFC PrimaryInspectorates

Sites

IEE

Lgend

MEBSA Ministry of Basic, Secondary and Audit EducationDGEN Directorate of EducationDCAPLN Directorate for Culture, Adult Literacy and Promotion of Local LanguagesDAAFM Ministerial ManagementINSH National Institute of Education SciencesISSED Higher Institution of Education SciencesDEE Directorate of Elementary EducationDES Directorate of Secondary EducationDET Directorate of Technical EducationDEA Directorate of Arabic EducationENI Higher Teacher Training InstituteENS Ecole normale supérieureCRFC Regional Permanent Training CentreIEE Institute of Elementary EducationCEG Collège d'enseignement général (Comprehensive School)ET Technical Education

Secondary Schools Renovation Project

ORGANISATION CHART OF THE MEBSA

REPUBLIC OF CHAD ANNEX 4

Elementary Education Secondary Education Higher Education

JSS, CS & SSS Sen. Sec. School

DTJ

CEG

GTE

LTI BACSN

LTICMPC

ENIPC3

ENI ABECHEIUTE 2-3

PM 1-3

SH 1-3

LV 1-3 ARABE

LV 1-3 ANGLAIS

ENS (ISSED)

VIE ACTIVE

I II III IV Level

Age

CP1 CP2 CE1 CE2 CM1 CM2 6th 5th 4th 3rd 2nd 1st T 1ère 2ème 3ème Year

LEGEND

CEG Comprehensive SchoolLTI BAC Technical Industrial CollegeLTIC Technical Industrial High SchoolENI Higher Teacher Training CollegeCA Vocational Training CentreCET Technical Training CollegeDTJ Law and Legal TechniquesGTE Management and EconomicsSN Natural SciencesMPC Maths., Physics and ChemistryPC Physics, ChemistryIUTE Institute for Breeding TechniquesSH Social SciencesPM Physics, Maths.LV Modern Languages

STRUCTURE OF THE EDUCATION SYSTEM

Secondary Schools Renovation Project

6 7 8 9 10 12 13 14 15 16 17 18 19 20 21

WORKING EXPERIENCE

11

Annex 5REPUBLIC OF CHAD

SECONDARY SCHOOLS REHABILITATION PROJECTImpact of The Project on Development

EVALUATION CRITERIA RATING OBSERVATIONRelevance and attainment of objectives 1 The project has not attained all the objectivesInstitutional Development 2 The projected impact on training of trainers is mitigated by an incomplete training programmeSustainability 1 The high numbers of pupils leads to a rapid degradation of infrastructure, teaching and learning equipment

and handbooks.Internal rate of return NAOverall evaluation 1.3 The constraints that the project aimed at resolving were greater even before its completion.

Matrix of Recommendations and Follow-Up

MAJOR OBSERVATIONS RECOMMENDATIONS FOLLOW-UP RESPONSIBILITYFormulation/Grounds for the project

Project design consistent with prevailingconstraints at evaluation.

Provide for actions of consolidation so thatthe same problems do not re-surge at thecompletion of the project.

Undertake actions upstream and down streamof the sub-sector concerned by the project.

ADB Government.

Project Implementation

The project went through numerousmodifications.

Poor management capacity of the ProjectImplementation Unit.

Avoid all modifications that were justified atevaluation.

Recruit on a contractual basis personnel ofexisting agencies paid from the loan proceedswith the following advantages: confideproject implementation to competentstructures and avoid frequent changes ofofficials in executing agencies.

Reformulate a project preferably amodification of the list of goods and servicessince modifications are important.

Carry out a rigorous selection of personnelfrom executing agencies so as to avoidfrequent changes.

ADB Government.

Compliance with loan agreement conditionsA major condition (release of counterpartfunds of the borrower) was not fulfilled.

Lay down a strict arrangement for thepayment of counterpart funds from borrowingcountries indispensable to the success ofBank financed operations.

Require for categories co-financed by theBank and the borrower that the latter shouldcommunicate to the ADB at the end of eachquarter, copies of invoices of counterpartfunds of the Borrower corresponding todisbursements made by the Bank during thesame period.

Government.

Performance Evaluation

All the initial activities have been realised asexcept for the renovation of comprehensiveschool No 1 (work stopped beforecompletion) and certain programmes of thetraining programme.

Ensure the consistency of human resourcesdevelopment programmes, within a time notexceeding six months after loan effectiveness.

Provide integral and systematic financing forcategories relating to human resourcesdevelopment, the keystone of all projects.

ADB

SustainabilityThe infrastructure (classrooms and sanitaryfacilities) of fair workmanship are insufficientcompared to the number of pupils resulting ina high rate of use and rapid degradation.

Provide support to the Government in its bidto consolidate the infrastructure already setup, failing which fresh resources should beprovided for their renovation.

Assess short and mid-term effects of sub-sectors upstream and downstream of thatconcerned by the project so that the latter willprovide less punctual and more long-lastingsolutions.

ADBGovernment