Document ofThe World Bank

Report No: 57524-HT

RESTRUCTURING PAPER

ON A

PROPOSED PROJECT RESTRUCTURING

OF

HT - MEETING TEACHER NEEDS FOR EFA PROJECT

GRANT H375-0-HT

APPROVED BY THE BOARD ON OCTOBER 26, 2010

TO THE

REPUBLIC OF HAITI

OCTOBER 27, 2010

ABBREVIATIONS AND ACRONYMS

APG Adaptable Program GrantDDE Direction Départementale de l’Education (Regional Education Office)DFP Direction de la Formation et du Perfectionnement (Department of Training

and Professional Development)EFA Education For AllFIA Formation Initiale Accélérée (Accelerated Teacher Training)GoH Government of HaitiIFM Institut de Formation des Maîtres (Teacher Preparation Institute)MENFP Ministère de l’Education Nationale et de la Formation Professionnelle

(National Ministry of Education and Professional Training)PAD Project Appraisal DocumentPTU Project Technical UnitSAP Service d’Appui Pédagogique (Educational Support Services)

Regional Vice President: Pamela CoxCountry Director: Yvonne Tsikata

Sector Manager / Director: Chingboon Lee/Keith HansenTask Team Leader: Michael Drabble

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HAITI HT - MEETING TEACHER NEEDS FOR EFA

P106621CONTENTS

PageA. SUMMARYB. PROJECT STATUSC. PROPOSED CHANGESD. APPRAISAL SUMMARYANNEX 1: RESULTS FRAMEWORK AND MONITORING

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Restructuring Status: DraftRestructuring Type: Level twoLast modified on date : 09/15/2010

1. Basic InformationProject ID & Name P106621: HT Meeting Teacher Needs for EFACountry HaitiTask Team Leader Michael DrabbleSector Manager/Director Chingboon Lee/Keith HansenCountry Director Yvonne M. TsikataOriginal Board Approval Date 04/29/2008Original Closing Date: 01/15/2013Current Closing Date 01/15/2013EA Category C-Not RequiredRevised EA Category C-Not Required-Not Required

2. Revised Financing Plan (US$m)Source Original Revised BORR 0.00 0.00 IDAT 6.00 5.78 Total 6.00 5.78

3. BorrowerOrganization Department Location

Republic of Haiti Haiti

4. Implementing AgencyOrganization Department Location

Ministry of National Education and Professional Training (MENFP)

Haiti

5. Disbursement Estimates (US$m)Actual amount disbursed as of 09/14/2010 1.39

Fiscal Year Annual Cumulative 2011 2.50 3.89 2012 1.69 5.58 2013 0.20 5.78 Total 5.78

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6. Policy Exceptions and Safeguard PoliciesDoes the restructured project require any exceptions to Bank policies? N

Does the restructured projects trigger any new safeguard policies? If yes, please select from the checklist below and update ISDS accordingly before submitting the package.

N

7. Project Development Objectives/OutcomesOriginal/Current Project Development Objectives/OutcomesHaiti aims to improve access and learning in basic education and to reach Education For All (EFA) by 2015. In order to achieve this, a greater number of higher quality teachers is needed, among other inputs. This project would support the Government of Haiti (GoH) in the development and implementation of an accelerated teacher preparation program.

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HT - MEETING TEACHER NEEDS FOR EFA

RESTRUCTURING PAPER

A. SUMMARY

1) The major changes to the Project and rationale are:

(a) a reduction in the targets for two outcome indicators and one intermediate outcome indicator, in light of delays in project implementation due to capacity constraints exacerbated by the January 2010 earthquake, and (b) strengthening of the capacity of the implementing agency, the National Ministry of Education and Professional Training (MENFP), and of the Teacher Preparation Institutes (IFMs) in order to help ensure that the revised targets can be met.

(c) a reallocation of the grant proceeds due to changes in component project costs.

B. PROJECT STATUS

2) The Project was approved on April 29, 2008 and became effective on September 26, 2008. It supports the MENFP in the development and implementation of an accelerated teacher preparation program (FIA - Formation Initiale Accélérée), designed to increase the number of high quality teachers and contribute to the achievement of Education for All (EFA) by 2015. Recent high school graduates are selected for a three-year program consisting of ten months in IFMs and two years of full time practice teaching. New teachers are expected to begin teaching only one year after entering teacher preparation (when they begin their practice teaching), as opposed to the current three-year lag from institution-based training to classroom teaching in the conventional teacher training system.

3) Prior to the January 2010 earthquake, the Project suffered from implementation delays and quality issues related to inadequate oversight by the implementing agency (i.e.: the Department of Training and Professional Development (DFP) of the MENFP) and insufficient professional development opportunities provided for teacher educators in the IFMs. With a lag of six months after project effectiveness, eighteen IFMs were pre-selected based on a survey which covered the amount of classroom space, number and qualification of teaching staff, qualifications of administrative and financial management staff and soundness of management procedures. The IFMs enrolled the first cohort of student-teachers in March 2009 rather than in September 2008 as originally planned. Because the training in IFMs lasts 10 months, the first cohort was,

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therefore, not expected to graduate before June 2010, a year beyond the initial schedule of the Project. This delay was due to: (a) lower capacity than anticipated at project appraisal of the DFP of the MENFP; (b) insufficient planning with respect to the execution of activities; and (c) insufficient preparation on the part of some IFMs to receive the new cohort of student-teachers (teaching staff not recruited and accommodations not available). In addition, the IFM-based training for this first cohort revealed a lower level of proficiency of IFM teacher educators than anticipated during project preparation, and unmet professional development needs of teacher educators due to insufficient funds.

4) The earthquake further reduced physical and human resources capacity both at the central and local levels, notably by destroying or damaging four IFMs and causing the tragic loss of the Director of the DFP, temporarily halting project activities. Four additional IFMs informed the MENFP of their decision to withdraw from the Project. The number of IFMs participating in the Project is, therefore, being reduced to 11 from 18 (one of the damaged IFMs has set up temporary installations and is likely to be prepared to continue offering teacher training through the Project). There is a possibility that new IFMs could be selected towards the beginning of the 2011/12 school year, in particular to ensure national coverage of the Project in all 10 regions of Haiti. If only the presently 11 identified IFMs continue to participate, the departments of Nippes and North would no longer be covered by the Project.

5) Student-teachers in the destroyed/heavily damaged IFMs and in the IFMs that dropped out of the Project had to be transferred to the remaining IFMs, causing further delays and complications. Training was interrupted in others IFMs for more than three months until April 2010. As a result, the first cohort of student-teachers—which was originally expected to graduate in June 2009—is now expected to complete the IFM-based training in December 2010, and would not begin the two-year practice teaching before January 2011, three months after the start of the 2010-11 school year.

C. PROPOSED CHANGES

Components

6) The Project components are: (1) recruitment and selection of teacher candidates; (2) accelerated teacher preparation; and (3) improved management of teacher preparation.

7) Components 1 has been reduced in scope, and Components 2 and 3 have been expanded.

8) The reduction in scope of Component 1 stems from a decrease in the number of student-teachers to be recruited for training by the Project.

The number of student-teachers recruited for the first cohort in March 2009 was 2,750, as planned. Because of the earthquake, dropouts and student-teachers

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failing the mid-term exam, it is expected that less than 1,700 will have completed the IFM-based training in December 2010 against an initial target of 2,500.

The number of student-teachers to be recruited for the second and third cohorts would decrease from 2,750 to 1,800 according to the diminished, post-earthquake capacity of the remaining IFMs. In the event that more IFMs participate than presently envisioned, the number of student-teachers that enroll for the third cohort might increase slightly.

9) The increase in scope of Component 2 stems from the addition to the Project of new advisors in each participating IFM.

In order to improve the quality of training and supervision of student-teachers in IFMs, the Project will increase the grant provided to IFMs so that each IFM would recruit a Pedagogic Advisor and a Practice Teaching Advisor starting in 2011.

10) The scope of Component 3, which supports the overall management of the Project, has also been revised, albeit only moderately. Some activities have been added, while others have been eliminated.

Four technical assistants (TAs) and a project coordinator, responsible for leading the implementation of project activities, have been recruited. The TAs and the Project Coordinator, who collaborates closely with the Acting Director of the DFP, work under the authority of the Project Technical Unit (PTU) General Coordinator.

The Project no longer finances capacity reinforcement of the Human Resources Division of the MENFP and Regional Education Offices - DDEs (Directions Départementales de l’Education), since they have not been directly involved in project implementation.

Institutional Arrangements

11) Addendums to the Participation Performance Agreement (PPA) signed between MENFP and the IFMs will be drawn up each year to set annually a resource envelope based on the number of student-teachers recruited.

Financial Management

12) The IFMs will prepare simple financial reports to justify the use of the increased grant resources.

Results/indicators

13) Targets for two of the five outcome indicators have been revised downwards (see Annex 1 for the revised Results Framework).

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(a) Access. With the reduction in the number of participating IFMs, fewer spots would be available for student-teachers, and with the delays in implementation not all three cohorts would complete all three years of the program. The number of student-teachers from the first cohort that are expected to complete all three years of the program (i.e. one year IFM-based training and two years of practice teaching) and become certified teachers in June 2012 is expected to drop to 900 against an initial planned target of 2,500. Fourteen-hundred student-teachers from cohort 2 are expected to complete two years of the program (i.e. one year IFM-based training and one year of practice teaching) against an initial target of 2,500. Fourteen hundred and forty student-teachers from cohort 3 are expected to complete one year of the program (i.e. one year IFM-based training) against an initial target of 2,500.

Original indicator : 2,500 new teachers certified by program end (June 2012); 2,500 complete second year of practice teaching; and 2,500 additional complete first year of practice teaching.

Revised indicator : 900 new teachers certified by program end (June 2012); 1,400 complete first year of practice teaching; and 1,440 additional complete the IFM-based training.

(b) Equity. The target percentage of certified teachers teaching in rural areas has been decreased given the new geographic dispersion of the IFMs presently identified to continue their participation in the Project.

Original indicator : At least 70 percent of newly certified teachers work in rural areas.

Revised indicator : At least 40 percent of newly certified teachers work in rural areas.

14) The target for one of the three intermediate outcome indicators has been revised downward to reflect the lower number of student-teachers to be recruited annually under the Project, and the expected fewer number of regions covered.

Original indicator : At least 2,750 qualified candidates selected by the ten regional Departments for participation in teacher education.

Revised indicator : At least 1,800 qualified candidates selected annually by at least eight regional Departments for participation in teacher education.

Financing

15) Project Costs . The changes in the project costs are limited as shown in the table below. The costs for Component 1 have been reduced because there will be less student-teachers recruited in 2011 and 2012 for the second and third cohorts than initially planned. There is a slight increase in the costs of Component 2 for two reasons: (a) the

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savings resulting from enrolling fewer student-teachers in the second and third cohorts are offset in large part by an increase since March 2009 to US$325 from US$150 in the yearly unit cost of training per student-teacher (the original unit cost had been estimated during Project preparation but proved to be insufficient to cover the costs of training); (b) an increase in the grant to each IFM to pay for the newly created pedagogic and practice teaching advisers; and (c) additional funds allocated to finance the professional development of IFM teacher educators. The costs of Component 3 have slightly increased due to the recruiting of new staff in the Project Management Unit (a position of Coordinator of the Project was created and four technical assistants have been recruited). This increase is practically offset by the reduction of activities aimed at building the capacity of the Human Resources Division of the MENFP and of the Regional Education Offices - DDEs (Directions Départementales de l’Education).

Project Cost By Component and/or

Activity

LocalUS$ million

ForeignUS$ million

TotalUS$ million

Original Revised Original Revised Original RevisedAccelerated Teacher Preparation for Basic Education (grades K-6)

1.82 3.13 3.88 2.55 5.70 5.68

Component 1: Recruitment and Selection of Teacher Candidates

0.14 0.14 0.19 0.05 0.33 0.19

Component 2: Accelerated Teacher Preparation

1.16 2.68 2.72 1.25 3.88 3.93

Component 3: Improved Management of Teacher Preparation

0.52 0.30 0.97 1.25 1.49 1.55

Total Baseline Cost 1.82 3.13 3.88 2.55 5.70 5.68Physical Contingencies

0.13 0.05

Price Contingencies 0.17 0.05Total Project Costs1 6.00 5.78

16) Reallocation . The changes in component project costs require a reallocation of the expenditure categories of the grants proceeds. The unallocated amount equivalent to 5.8 percent of the grant has been reallocated to the categories two and four.

1 The change in Total Project Costs to US$5.78 million from US$6.0 million results from a decrease in the value of the US$ dollar in comparison to the SDR exchange rate.

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Category Original Amount of Financing Allocated (expressed in SDR)

Revised Amount of Financing Allocated (expressed in SDR)

Difference

(1) Goods, Non-consultant services, consultants’ services and Operating costs for Part 1 of the Project

210,000 130,000 (80,000)

(2) Goods, Non-consultant services, consultants’ services and Operating costs for Parts 2.1 and 2.2 of the Project

190,000 460,000 270,000

(3) Eligible expenditures financed through PPAs under Part 2.3 of the Project

2,240,000 2,170,000 (70,000)

(4) Goods, Non-consultant services, consultants’ services and Operating costs for Part 3 of the Project

940,000 1,040,000 100,000

(5) Unallocated 220,000 0TOTAL AMOUNT 3,800,000 3,800,000

Implementation schedule

17) Although the duration of the Project remains unchanged, the implementation schedule has been revised to take into account the many delays in recruiting and training student-teachers. Every new cohort was expected to enroll in September at the beginning of the school year and complete either training or practice teaching in June at the end of the school year. With the delays experienced, the first cohort was enrolled in March 2009 and the next two cohorts will be enrolled in January 2011 and January 2012, which is in the middle of the school year. The same is true for graduation from IFM-based training which is planned for December of 2010, 2011 and 2012. Practice teaching which will start in January of 2011 might end in June 2011 if the school year ends effectively in June (the school calendar is still unreliable because most schools were closed for four months after the earthquake).

D. APPRAISAL SUMMARY

Economic and financial analysis

18) The economic analysis estimates total gains in completed years-of-schooling for students taught by additional teachers with improved teaching skills. Among the key inputs for the estimate of economic benefits, the number of students taught by new teachers trained under the Project would change, reflecting the proposed reduction in the number of student-teachers.

The analysis uses the original cost data:11

19) The number of students taught by new teachers each year is calculated as the product of student-teachers trained under the project and the average number of students per teacher (40):

20) The estimated gains to educational attainment in year for students taught by new teachers are assumed to be unchanged as shown below:

21) To calculate the additional lifetime earnings accruing to an individual with an extra year of education, we use the same methodology and figures used in the project appraisal document:

Returns to education: 16.2 percent (World Bank CEM, 2006). 2005 yearly income per capita, taken as a proxy of worker’s earnings: $400. 40 years working life span, beginning at age 15.

22) Under these assumptions, the new estimated internal rate-of-return (IRR) for the project is estimated to be 19.6 percent, as opposed to the original estimation at 28.3 percent, and the net present value (NPV) at a rate of return of 15 percent is estimated at US$3.3 million, as opposed to the original estimation of US$13 million.

Risk

23) Risks identified during implementation that might jeopardize achievement of the project development objective are:

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Risks Risk Rating

Risk Mitigation Measures

Political turnover and/or political unrest due to the upcoming November 2010 elections.

H The involvement of decentralized structures of the GoH means there is support for the project at more than just the central level, which may help counterbalance political opposition.

Over the long-term, provisional tent cities in IFM properties could become disruptive to the FIA calendar, for example if there is social unrest or discontent among these populations. This could jeopardize outcomes particularly as IFMs grow in student population (due to relocation of students affected by the earthquake and/or recruitment of an additional FIA cohort).

M The project is in regular contact with the IFMs, who are aware of the general state of mind of the camp populations.

Efforts have been made on all IFM sites with camps to separate the FIA students from the camp residents.

The PTU may become overloaded with the increase in rhythm of project activities and with the addition of the Haiti Education for All Trust Fund to its portfolio, resulting in continued implementation delays.

M Additional staff members have been or will be hired since the earthquake to strengthen the human resources capacity of the PTU, including an additional procurement specialist and an administrative assistant exclusively for the FIA.

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ANNEX 1:Results Framework and Monitoring

HAITI: HT - MEETING TEACHER NEEDS FOR EFA

Project Development Objective (PDO): Haiti aims to improve access and learning in basic education and to reach EFA by 2015. In order to achieve this, among other things, a greater number of high quality teachers is needed. This project would support the GoH in the development and implementation of an accelerated teacher preparation program.

PDO Level Results Indicators* C

ore D=Dropped

C=ContinueN= New

R=Revised

Unit of Measure Baseline

Cumulative Target Values** Data Source/Methodology

Responsibility for Data

CollectionFY09 (06-

2009)FY10 (06-

2010)FY11 (06-

2011)FY12 (06-

2012)FY13 (01-

2013)Indicator One Access: 900 new teachers certified by program end, 1,400 complete the first year of practice teaching and 1,440 additional complete the institution-based training.

R No. of teachers N/A

0 new teachers certified by program end, 0 complete the first year of practice teaching and 0 additional complete the institution-based training.

0 new teachers certified by program end, 0 complete the first year of practice teaching and 0 additional complete the institution-based training.

0 new teachers certified by program end, 0 complete the first year of practice teaching and 1,700 additional complete the institution-based training.

0 new teachers certified by program end, 1,050 complete the first year of practice teaching and 1,440 additional complete the institution-based training.

900 new teachers certified by program end, 1,400 complete the first year of practice teaching and 1,440 additional complete the institution-based training.

Program implementation reports and external evaluations

DFP, DDE/SAP, IFMs and external evaluators

Indicator Two Access: Of those certified at least 80% are employed as teachers; at least 50% of those are employed in the public sector.

C% of

certified teachers

N/A N/A N/A N/A N/A

80 % of certified teachers employed; 50 % of those employed in the public sector

Program implementation reports and external evaluations

DFP, DDE/SAP, IFMs and external evaluators

Indicator Three: Quality: Newly certified teachers complete high school (Bac II) and three year teacher preparation program. At

C % of student-teachers

N/A N/A N/A N/A N/A 90% Program implementation reports and external evaluations

DFP, DDE/SAP, IFMs and external evaluators

least 90% of student teachers who complete three year program are successfully certified.Indicator Four: Equity: At least 40% of newly certified teachers work in rural areas.

R% of

certified teachers

N/A N/A N/A N/A N/A 40%

Program implementation reports and external evaluations

DFP, DDE/SAP, IFMs and external evaluators

Indicator Five: Governance: Auditors find satisfactory financial implementation of MENFP-IFM contracts.

C Audit N/AAudit report submitted to

the Bank

Audit report

submitted to the Bank

Audit report submitted to

the Bank

Audit report

submitted to the Bank

Audit report submitted to

the Bank

Audit reportsExternal auditors

INTERMEDIATE OUTCOMES

Intermediate Outcome indicator: At least 1,800 qualified candidates selected annually by at least eight regional Departments for participation in teacher education

R No. of teachers N/A

2750 candidates selected

2,750 candidates selected

4,550 candidates selected

6,350 candidates selected

6,350 candidates selected

Program implementation reports and external evaluations

DFP, DDE/SAP, IFMs and external evaluators

Intermediate Outcome indicator Revised curriculum produced and distributed to IFM; teacher educators trained and materials produced accordingly

C Teacher educators N/A

First Part of curriculum prepared and distributed. Training of trainers carried out.

Curriculum completed and distributed. Training of trainers carried out

Additional revisions on curriculum completed and distributed. Additional Training of trainers carried out

Additional revisions on curriculum completed and distributed. Additional Training of trainers carried out

Additional revisions on curriculum completed and distributed. Additional Training of trainers carried out

Program implementation reports and external evaluations

DFP, DDE/SAP, IFMs and external evaluators

Intermediate Outcome indicator: Financial systems for transfers from MENFP/MOF to IFM operational for 100% of IFM

C

Financial management of IFM

N/A Transfers to IFM executed; evaluation of financial capacity completed for all the IFM

Transfers to IFM executed; evaluation of financial capacity completed for all the IFM

Transfers to IFM executed; evaluation of financial capacity completed for all the IFM

Transfers to IFM executed; evaluation of financial capacity completed for all the IFM

Transfers to IFM executed; evaluation of financial capacity completed for all the IFM

Program implementation reports and external evaluations

DFP, DDE/SAP, IFMs and external evaluators

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