Document of

The WVorld Bank

FOR OFFICIAL USE ONLY

Report No. 9478

PROJECT COMPLETION REPORT

BENIN

SECOND EDUCATION PROJECT(CREDIT 1246-BEN).

MARCH 28, 1991

Population and Human Resources DivisionOccidental and Central Africa DepartmentAfrica Regional Office

khis document has a restricted distribution and may be used by recipients only in the performance oftheir official duties. Its contents may not otherwise be disclosed without World Bank authorization.

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ABBREVIAT10NS

BAG BaccalaureatUpper Secondary School Certificate

BEN BeninBEPC Brevet d'Etudes du Premier Cvcle

Lower Secondary School CertificeteBID Islamic Development BankCAA Ceisse Autonome d'Amortissement

Autonomous Amortization FundCAP Certificat d'Aotitude PMdanoriaue

Teacher's CertificateCPAP African Financial Community francCNPMS Cetre National de Production de Manuels Scolairee

National Textbook Production CenterCP Comolexe Polvtechnioue

Vocational InstituteCPA Comolexe Polvtechniue Agricole

Agricultural Vocatic.al InetituteCPI Comnlexe Polytechnioue Industriel

Induetrial Vocational InstituteCUC8S Centre Universitaire de Coopnration Economioue et Sociale

University Center for Economic and Social Cooperation(Nancy,France)

DON General Directorate of the MinistryDM Deutsche MarkDPE Direction Provincisle ("Ddpartementale, DDE" after March 15. 1990)

de l'EnseienementProvincial Directorate of Education

DMET Direction Provinciale ("D6yartementale, DDET" after March 15. 1990)de l'Eouicement et des TranseortsProvincial Directorate of Public Works and Transportation

ENI Ecole Normale Int6gr6eTeachers College

fRB Federal Republic of GermanyGNP Gross National ProductGTZ Deutsche Gesellschaft fOr Technische Zusaemenarbeit

German Agency for Technical CooperationIDA International Development AssociationIBM Institut National Dour la Formation et la Recherche en Education

National Institute of Education Training and ResearchJIR Jeunes Instituteurs R6volutionnaires

National Teaching Service TeachersmoEM Minist6re des Enseignements Maternel et de Base

Ministry of Pre-Primary and Primary Education (before March 15,1990)

HEMOCT Ministere des Enseienements Hovens C6n6ral. Tecenioue etProfessionnelMinistry of General Secondary. Technical and Vocational Education(before 1986)

HEMS Minist6re des Enseianemento Movens et SuodrieurMinistry of Secondary and Higher Education (from 1986 to March 15.1990)

HEN Ministre de l'Education NationaleMinistry of National Education (since March 15. 1990)

MET Minist6re de l'EQuioement et des TransoortsMinistry of Public Works and Transportation

MIP Minist4re de l'Information et de la ProoaaandeMinistry of Information and Propaganda (before March 15, 1990)

MIS Management Information System (of IDA)MPS Minist4re du Plan et de ia Statistiaue

Ministry of Planning and StatisticsPB Project BriefPU Project UnitPPF Project Preparation FacilityPCR Project Completion ReportSAC Structural Adjustment CreditSAP Structural Adjustment ProgramSDR Special Drawing RightsSEFIC Soci6t6 d'Expertise Comotable. d'Audit. d'Oraenisation,

d'Informatique et de ConseilsAccounting. Auditing. Organization. Data Processing and ConsultingCompany

S0DETLE Soci6tA d'Etudes et de Techniques et d'Entreorises G6n6rales(Studies and General Techniques and Enterprises Company) (Paris.France)

SwF Swiss francUNDP United Nations Development ProgramUnesco United Nations Educational. Scientific and Cultural OrganizationUnesco CP Unesco/World Bank Cooperative Program

FOR OFFCIAL USE ONLYTHE WORLD BANK

Washington, D.C. 20433U.S.A.

Office of OirectcW.G.waOpwatons Evluati'rn

March 28, 1991

MEMORANDUM TO THE EXECUTIVE DIRECTORS AND TEE PRESIDENT

SUBJECT: ProJect Completion Report - BeninSecond Education Proiect (Credit 1246-BEN)

Attached, for information, is a copy of a report entitled"Project Completion Report - Benin Second Education Project (Credit1246-BEN)", prepared by the Africa Regional Office. No audit of thisproject has been made by the Operations Evaluation Department at thistime.

Attachment

This document has a restricted distribution and may be used by recipients only in the performanceof their official duties. Its contents may not otherwise be disclosed without World Bank authorization.

Prolect Comnletion Report FOR OMFCL USE ONLY

BENIN

Second Education Project(IDA Credit 1246-BEN)

TABLE OF CONTENTS

PREFACE ,..............................iEVALUATION SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . i

PART I REVIEW OF THE PROJECT FRRIC THE BAR'S PERSPECTIV . . . . . 1A. Project Identity . . . . . . . . . . . . . . . . . . . .B. Background. . . . . . . . . . . . . 1 . . . .C. Project Objectives and Description . . . . . . . . . . . 2D. Project Design and Organization . . . . . . . . . . . . 3E. Project Implementation . . . . . . . . . . . . . . . . 4F. Project Results . . . . . . . . . . 5. . . . . . . . 5G. Project Sustainability . . . . . . . . . . . . . . . . 7H. IDA Performance. .. . . . . . . . . . . . . . 7I. Borrower Performance . . . . . . . . . . . . . . . . . 9J. Project Relationships . . . . . . . . . . . . . . . . . 10K. Contracted Services . . . . . . . . . . . . . . . . . . 10L. Project Documentation and Data . . . . . . . . . . . . . 11

PART II REVIEW OF TE PROJECT FlRM THE B0RR(IRS PERSPECTE . . . 131. Introduction ...................... 132. Project Preparation . . . . . . . . . . . . . . 263. Project Implementation . . . . . . . . . . . . . . . . 284. Problems .... . . . . . . . ...... . . . . .. 205. Project Financing . . . . . . . . . . . . . . 206. Status of Credit Agreement Covenants . . . . . . . . . . 217. Implementation Timetable and Credit Management . . . . . 218. Borrower and IDA Performance . . . . . . . . . . . 219. Conclu.sions and Lessons . . . . . . . . . . . . . . . 22

PARTIIISTATISTICALi FORMATION . ........ ......... .251. Related IDA Credits . . . . . . . . . . . . . . . . . . 252. Project Timetable . . . . . . . . . . . . . . . . .. . . 263. Credit Disbursements . .e. . . . . . . . . . . .. . . 274. Project Implementation . . . . . . . . . . . . . . . . . 275. Project Costs and Financing . . . . . . . . . . . . . . 286. Project Results . . . . . . . . . . . . . . . . . . . . 307. Status of Credit Agreement Covenants . . . . . . . . . . 328. Use of IDA Reaources . . . . . . . . . . . . . . . . . . 35

This document has a restricted distribution and may be used by recipients only in the performanceof their official duties. Its contents may not otherwise be disclosed without World Bank authorization.

Paae No.

ANNEXES1. Comparative Implementation Timetable . . . . . . . . . . 382. Comparative Table of Project Costs . . . . . . . . . . . 393. Comparative Table of Technical

Assistance Specialists . . . .............. 404. Comparative Table of Training

Fellowships .... . .... . . . . . . . . . . . . 435. Comments of the Government of Benin . . . . . . . . . . 44

Proiect Completion Report

BENIN

Second Education Project(IDA Credit 1246-BEN)

PREFACE

This document constitutes the Project Completion Report (PCR) for theSecond Education Project in Benin, for which Credit 1246-BEN, for SDR 12.2million, was approved on May 13, 1982. The Credit was closed on June 30, 1989,a year later than originally scheduled. It was fully disbursed; the lastdisbursement took place on February 26, 1990.

The Preface, Evaluation Summary and Parts I and III of the PCR wereprepared jointly by Unesco (Bureau for Co-ordination of Operational Activities,Operational Policy and Sector Analysis Division) and IDA (Occidental and CentralAfrica Department, Population and Human Resources Division). Part II wasprepared by the Government of Benin (Project Unit). Subsequent to the preparationof this PCR, the comments of the Government of Benin and of the cofinancingagencies (Swiss Development Cooperation and GTZ) on the French version of the PCRwere sought by Unesco (July 25, 1990). The Government's comments (cf. Annex 5)were received in September 1990 and have been reflectee In this PCR; no commentshave been received from the cofinanciers.

Preparation of the PCR began during IDA's final supervision missionsin 1988 and 1989. The project completion mission took place from April 21 to May12, 1990. The PCR is based, inter alia, on the Staff Appraisal Report, theCredit Agreement, the Project Unit's progress reports, IDA supervision reports,correspondence between IDA, the cofinanciers and the Beninese Government, and IDAinternal memoranda.

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Proiect Completion Report

BENIN

Second Education Project(IDA Credit 1246-BEN)

EVALUATION SUMMARY

Obiectives (sue paras. 1.01, 1.03 and 1.04)

1. The objectives of the project, in line with those of the educationsector and with the macroeconomic policy of the National Development Plan, wereto improve the quality of primary and lower secondary education with the ultimateobject of widening access to the education system, improving its externalefficiency and reducing its costs. The Project comprised three components (cf.para. 1.05):

(a) Primary and lcrier secondary education: (i) construction,furniture and equipment for three ENIs (teachers colleges). atLokossa, Natitingou and Parakou, for training about 675 prix@arysch4ol teachers and 260 lower secondary school teachersannually; (ii) establishment of training programs for ENIstudents, focussing on the general disciplines at the primarylevel and the general and vocational disciplines at the lowersecondary level; and (iii) about 14 fellowships, equivalent toabout 168 training-months, for the Beninese personnelresponsible for operation and maintenance of the ENIs.

(b) Production and distribution of textbockAs: construction,furniture and equipment for a print shop at Porto-Novo; (ii)construction, furniture and equipment for a central warehouselocated near the print shop and six regional warehouses atlocalities to be agreed upon with IDA; (III) establishment andstart-up of a program for printing and distributing about470.000 textbooks and teaching guides a year; and (iv) aboutthree fellowships, equivalent to 85 staff-months of trainingabroad, for print shop staff.

(c) Proiect manaaement. evaluation and nlanning: (i) strengtheningof the Project Unit by improvement of its management,procurement and accounting procedures, supply of additionalfurniture and equipment, financial assistance for start-up, andabout five fellowships, equivalent to 60 staff-months oftraining, in areas related to project management; (Il)establishment of a system of monitoring and evaluation of

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project activities; and (iii) planning and preparation of futureeducation projects.

Implementation Ex_erience ( '. paras. 1.08, 1.09 and 1.10)

2. Substantial variances were noted between planned and actual

implementation:

(a) the Credit closing was put back a year and physical completiondelayed by up to three and a half years (owing essentially todelays in completion of the civil works and project stafftraining); and

(b) total cost exceeded the appraisal estimate by 22Z in US dollar:s

equivalent; and

(c) the distribution of actual project costs differed from theappraisal estimatea: higher expenditures for equipment.fellowships and operation; lower expenditures for local fees andtechnical assistance; the distribution of the financing alsodiffered: IDA's share declined from 55 to 46 percent. whilethat of the Beninese Government rose from 13 to 17 percent.

Results (cf. paras. 1.11. 1.12 and 1.13)

3. The project results were achieved only partially:

(a) ENIs: (i) the infrastructure and equipment exist but are

insufficiently used; (ii) an adequate number of nearby staff

residences was not provided; (iii) no maintenance system is as

yet in operation; and (iv) the number of teachers trained isstill far less than planned (445 instead of 935 at the end ofthe current school year).

(b) Textbooks: (i) the production of manuscripts is still

inadequate (12 instead of 36. with only 4 printed); (ii)manufacture is too limited (26,200 copies instead of 470.000);and (iii) a distribution system is not as yet in operation.

Sustainabilitv (cf. paras. 1.14 and 1.15)

4. The net project benefits can be expected to increase when (a) theeducation reform currently under study is implemented, and (b) the officialtextbook production and distribution policy and strategies are finalized.

Pindings and Lessons Learned (po-as. 1.16 through 1.19)

(a) The Project was well designed since the components are mutuallycomplementary and respond to the Governmenc's needs andstrategies. It was innovative in that (i) it rationalizes

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teacher training (3 ENIs instead of the previous 6) and made theapproach to training more professional; (i) it catered for thetraining of technical and vocational secondary educationteachers; and (iii) it provided linkage between teacher trainingand textbook production and distribution. However, in the caseof the textbooks component, more detailed analysis of thetextbooks problem and of the existing publishing anddistribution agencies vwould have made it possible to define thecontent and distribution of each agency's tasks more preciselyand to avoid relying on resource-poor and therefore inefficientbureaucratic agencies.

(b) Project identification, with IDA assistance, was good, butpreparatior. was too hasty on the education side: (i) too littleinput into the ENI curricula, which ought to have been tailoredmore closely to the teachers' professional needs, and (ii) toohasty choice of the "printing facility" option. Appraisalrightly diagnosed certain risks, but insufficiently prescribedfor minimizing them. The education supervision missions weretoo few, particularly in the case of agricultural education.The essent4al lesson to be drawn is that a broader, morecomprehensive approach to the education system is needed beforedeciding on the areas of intervention, together with closer andmore coherent monitoring of the education aspects during projectimplementation.

(c) The Borrower provided good continuity of the activities, thanksto the stability of the Project Unit, and acted energetically toensure completion of two ENIs through parallel management of thedefaulting contractor (to which two difficult constructioncontracts had been awarded, despite IDA's recommendation that.having regard to its capacity, it be awarded only one).However, the dispersal of the personnel and powers of theProject Unit among several departments hampered coordination andmonitoring of certain activities. The essential lesson to betaken into account in future oparations is therefore theimportance of having a coordinating mechanism at an appropriatelevel of the existing administrative structure.

Proiect Comjletion Report

BENIN

Second Education Project(IDA Credit 1246-BEN)

PART I. REVIEW OF THE PROJECT FROM THE 3ANR'S PERSPECTIVE

A. Project Identity

Project Name: Second Education ProjectCredit No.: 1246-BENRVP Unit: AfricaCountry: BeninSector: Education

B. Background

1.01 Sectoral develonment goals (Appraisal Report, April 1982). The 1978-80National Development Plan proposed a strategy based on the decree relating to the1975 education reform which was geared to the development of primary andtechnical education and vocational training. The primary education developmentprogram comprised (a) provision of additional premises; (b) improvement andexpansion of initial and in-service teacher training; and (c) supply to theschools of adapted teaching materials. In addition. the Government wished todevelop technical education and vocational training by improving science andmathematics teaching in general secondary schools, and expanding the technicaland vocational schools. The Government's strategy aimed at enhancing educationquality and efficiency while continuing to widen access to primary education andvocational/technical training. Finally, the Go'ernment sought to reduce the costof education and diversify its sources of financing.

1.02 Macroeconomic settinx. The medium-term growth prospects justifiedmeasured optimism since the National Development Plan looked to average real GNPgrowth of 5 percent a year from 1981 to 1985. However, a number of sizable riskswere anticipated, particularly a slowing of exports and a worsening of thefinancial situation of the state enterprises. To deal with this situation, theGovernment adopted as major goals raising agricultural production and exports,and upgrading manpower resources. Benin's active population, estimated in 1980at 1.5 million (out of a total population of 3.4 million), was employed mainlyin the traditional sector (1.4 million); the workforce of the structured modernsector totaled only 60,000. Under-employment and unemployment were verywidespread in Benin, which at the same time faced a serious shortage of skilledlabor. This shortage was due to the fact that, while the education systemtrained administrative staff with a wide general education, it neglectedvocational training.

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1.03 Relationhhips between Droiect Aoals. sectoral goals and macroeconomicpolicy. The goals of the Project were closely correlated vith those of thesector and of macroeconomic policy as dascribed in paras. 1.01 and 1.02.Quantitativa improvement of the training of primary school and lower secondaryschool. teachers (the three ENle), *ogether with qualitative it -- ement throughcurriculum reform, strengtheniaig of the scientific and technical areas in theENIs, and the production of teaching materials for the schools were at the heartof the policy for the sector. Moreover, regrouping teacher training within threeENls, instead of six as before, was expected to help reduce the operating costsof the education system. Ultimately, the pupils were expected to receive abetter education, gearec ,re to the scientific and technical subjects, and tobe qualified to pursue vocational training, the technical content of which wasto help alleviate the scarcity of skilled labor that was limiting the developtuentof the national economy.

C. Proiect Objectives and Description

1.04 The main objective of the Project was to improve the quality of primaryand lower secondary education by increasing the number of qualified teachers andavailable textbooks for those education levels, with the object of helping, inthe longer run, to resolve the problems of access to education, of its externalefficiency (through better preparation for active life) and of its costs (byreducing dropout and repeater rates). Finally, the increase in the number ofteachers in the vocational disciplines - agricultural and technical - wasintended to make it possible to train a labor force better prepared for the needsof the labor market.

1.05 Proiect components(a) Primary and lower general secondary (level 1)

(i) construction, furniture, equipment and about 6 months ofprocurement specialists' services for three ENIs (teacherscolleges), at Lokossa, Natitingou and Parakou, fortraining about 675 primary school teachers and 260 loversecondary school teachers annually;

(ii) establishment of training programs for ENI students,focussing on general disciplines at the primary level andgeneral and vocational disciplines at the lower secondarylevel, including about 40 months of specialists' services;and

(iii) about 14 fellowships, equivalent to about 168 months oftraining abroad for the Beninese personnel responsible foroperation and maintenance of the EN1s, and about 6 monthsof maintenance specialists' services.

(b) Textbook Droduction and distribution(i) construction, furniture and equipment for a print shop at

Porto-Novo;

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(ii) construction, furniture and equipment for a centralwarehouse located near the print shop and six regionalwarehouses at localities to be agreed upon with IDA;

(iii) establishment and start-up of a program for printing anddistributing about 470,000 textbooks and teaching guidesa year; and

(iv) about 166 months of specialists' services and about threefellowships, equivalent to 85 months of training abroadfor print shop staff.

(c) Project management. evaluation and planning(i) strengthening of the Project Unit: improvement of its

management, procurement and accounting procedures, supplyof additional furniture and equipment, financialassistance for start-up, about 162 months of specialista'services and about five fellowships, equivalent to 60months of training abroad in areas related to projectmanagement;

(ii) establishment of a system of monitoring and evaluation ofproject activities, including about 9 months ofspecialists' services; and

(iii) planning and preparation of future projects in theeducation sector, including about 12 months ofspecialists' servi_es.

D. Prolect Design and Orfanization

1.06 The Project was well designed in tnat the three components weremutually complementary and responded to the Government's education developmentrequirements and strategies. The projection of execution ove. five years (1982-87) was reasonable. However, in the case of the Textbooks Production andDistribution component, more detailed analysis of the textbooks problem-frommanuscript design aLd drafting to use of the textbooks in class-and of theexisting publishing and distribution structures would have made it possible (a)to define the content of essential tasks such as publishing and distributiont (b)to assess the reliability of the agencies responsible for these functions; and(c) to foresee in greater detail how these activities would turn out and therebyavoid the tensions between the manuscript preparation and publishing agency-theNational Education Training and Research Institute (INFRE)--and the productionand distribution agency-the National Textboki Production Center (CNPMS).

1.07 The Project has the merit of being innovative in that, for the firsttime, (a) the training of primary and lower secondary teachers isprofessionalized (practical courses linked to theoretical instruction) andrationalized (regrouping of the former six training centers int3 threefunctionally designed and equipped ENIs), and (b) provision is included for

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training technical and vocational secondary education teachers (at the LokossaENI). It also has the merit that it links teacher training closely to theproduction and distribution of teaching materials. The coherence of the trainingcould have been improved by including systematic in-service training for the ENLIteachers and also giving attention to that of administrators, inspectors,teaching counsellors and primary and lower secondary school instructors (mattresd'annlication).

E. Project Implementation

1.08 Project components (cf. para. 1.05 above) have been mostly implementedwith, however, the following most critical variances between planned and actualimplementation:

(a) duration: Credit closing was extended by one year and physicalcompletion was extended by up to three and a half years (cf.Part III, Section 2 and Annex 1), owing to delays in (i)effectiveness of the Credit Agreement; (ii) finalization of aparallel cofinancing agreement; (iii) architectural studies;(iv) awarding certain works, goods and services contractst (v)execution of some of these contracts (particularly those forcivil worke on the Natitingou and Parakou ENls); and,consequently, (vi) disbursement of the Credit Proceeds (cf. PartIII, Section 3). Project Completion, which was originallyscheduled for December 1987, is expected to be achieved in June1991.

(b) cost, which exceeded the appraisal estimate (by 22 percent in USdollar equivalent and 45 percent in ClAF equivalent), thedifference being covered by the favorable variation in theexchange rates and an increase (of 60 percent in US dollarequivalent and 90 percent in ClAP equivalent) in Governmentfinancing (cf. Part III. para. 5 and Annex 2).

(c) distribution of costs (i) among certain expenditure categories(higher than projected for furniture, equipment, fellowships andoperating expenses; lower for local professional fees andspecialists' services); and (ii) among financing sources: IDA'sshare declined from 55 to 46 percent, while that of the BenineseGovernment rose from 13 to 17 percent, in US dollar equivalent(Cf. Part III, Section 5).

1.09 (a) The most serious time overrun, concerning construction of theNatitingou and Parakou ENLIs (5-1/2 years instead of 2-1/2).could have bean avoided if the Goverment had not insisted onawarding both contracts tc. the same contractor, even though IDAhad expressed doubt about the contractor's ability to handleboth contre.cts and had recommended that it be awarded only oneof them.

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(b) The cost overrun, resulting mainly from inflation, would havebeen reduced by a more timely implementation.

(c) During project implementation, IDA agreed to the Government'sproposals to (i) reduce the number of fellowships for trainingabroad and to increase local training (cf. Annex 4); (11)include local upgrading of school directors and administrators(cf. Annex 4); (iii) increase the financing of operating coststo ensure basic operation of ENIs and project completiong and(iv) reduce the number of staff-years of specialists' services(cf. Annex 3).

1.10 Those Project risks that were foreseen at appraisal were accuratelyidentified, but others were missed, including the followings

(a) the difficulty in recruiting a staff adequately trained, inacademic and teaching terms, for the teacher training role inthe ENIs;

(b) the limitations of INFRE, which was not able to produce all themanuscripts provided for (in retrospect, it might have beenbetter to have set up a private publishing house and given itthe opportunity to carry out manuscript preparation, publishingand distribution);

(c) delays in finalizing the Government-GTZ agreement;

(d) coordination problems between the two education ministries (MIMIand MEMGTP, then HEMS); and

(e) the deterioration of the financial situation.

F. Proiect Results

1.11 The project objectives were achieved only partially. Theinfrastructures and equipment exist, although the need for minor complements weeidentified by the last supervision mission at the Natitingou and Parakou ENIs,for which the Government has sought the Swiss Development Cooperation' a agreementto use the small uncommitted balance of their cofinancing Fund, (cf. Part III-5.Cthereafter); but the system does not operate as foreseen at appraisal. The goalsdid not change during executiton except as regards textbook distribution policy(cf. para. 1. 13). The lack of adequate staff housing at affordable prices doesnot alter the purposes of the ENIs, but it may hamper staff availability,motivation and efficiency.

1.12 The ENIs are not meeting the target in terms of number of teacherstrained per year, owing to the cumulative effect of the following factors:

(a) inadequate level of the crndU.dates presenting themselves forentry examination;

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(b) the need to avoid taking teachers away from the classrooms forthis two to three year training period;

(c) the availability to the teachers of a shorter way of obtainingthe Teaching Certificate (CAP); such as education bycorrespondence, three weeks of seminars, and inspection of jobperformance; and

(d) inadequate number of candidateo for the technical, agriculturaland home economics disciplines.

1.13 Moreover, -...r quality of the training is affected by:

(a) insA -.e craining-academic and professional--of the teachert+- t staff, who are not always able to integrate thesv-%Aehi. :.-aching materials into the courses, and these coursesremain tco academic;

(b) inadequate support staff for the assembly and maintenance ofthese materials;

(c) insufficiently rigorous equipment maintenance; and

(d) difficulty in finding trained instructors to supervise theteaching practice of the trainees.

1.14 The Project is nevertheless beginning to have an impact, since theschool inspectors consider the new ENI graduates to be of a higher academic andprofessional caliber than the earlier graduates from the six provincial primaryteacher training colleges. The new premises provide a functional physicalsetting and, when the equipment installed becomes fully operational, will furnisha favorable training environment.

1.15 Textbook production and distribution are behind schedule in terms ofboth numbers of textbooks and pace of operation. The shortfall in numbersbetween projected and actual production is explained by the following factors:

(a) the parallel cofinancing agreement between the Government andGTZ was signed with a three to four year delay;

(b) not enough manuscripts are available;

(c) distribution is not operational, owing to weakness of theINERE/DPE (Provincial Education Directorates) network, the slowstart-up of the bookstores network, and the failure to maketeachers and parents adequately aware of the importance of usingthe books;

(d) the publishing policy of the MEMS, which has not used theservices of the CNPMS; and

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(e) the fall in parents' purchasing power due to Benin's economicand social situation.

1.16 Of the 36 manuscripts to be furnished by INFRE. only 12 have been givento the printer and only 4 printed. The others are in preparation or are with theauthors for correction. A total of seven titles have been produced, i.e. 26,200books, of which 7,300 have been sold and 18.900 are still in stock. Only oneprimary school textbook has been produced by INFRE and printed by CNPMS, becausethe former MEMB (Ministry of Pre-Primary and Primary Education) preferred topursue its collaboration with the French publishers rather than entrustmanufacture of books to CNPMS. Sale to parents is therefore not yet in fullswing, despite the recent setting-up of a distribution network by the bookstores(31 points of sale in the cities). The regional distribution network (INFRE/DPE)is not functioning either. The planned six provincial warehouses have not beenbuilt, since CNPMS has changed its distribution policy, giving preference to theprivate bookstores network.

G. Prolect Sustainabilitv

1.17 The net benefits already in place (premises, equipment, and textbookproduction structure) should not only be sustained, but can be expected toincrease when:

(a) under the education reform currently under study, more flexibleand operational agencies are set up and a start has been made onmore systematic training of all staff of the Ministry ofNational Education (MEN), which has now absorbed the former HEMBand MEMS; and

(b) MEN has finalized and implemented its textbook production anddistribution policy and strategies.

1.18 The slowness in setting up the building and equipment maintenancesystems could have an eventual negative impact on the outcome of the Project.The attention of the authorities should be drawn to this point to ensure thatconserving the existing assets through proper maintenance is given high priorityin national education policy. The reform of the education structure currentlyplanned should lead to the installation of a rational system and a limited, butcompetent and motivated staff. In the longer run the Project will be anadditional factor in facilitating the implementation of that reform.

H. IDA Performance

1.19 Strengths and weaknesses

(a) While identification of the Project went forward correctly.there was inadequate preparation of the education aspects. Atproject preparation, there should have been more attention paidby IDA to ensuring that the ENI curricula were geared moreclosely to.the teachers' real needs and basing them less on a

university type of course. This would have avoided a trainingcourse that was too long, too costly and insufficiently relevantto the needs of the classroom. Concerning the textbookscomponent, it is not c3ear that the prior technical and economicstudies were sufficiently detailed and adequately controlled toprovide a basis for (i) choosing between the options of settingup a printing facility and having the books printed abroad byinternational tender; or (ii) tailoring the print shop capacityto the size of the country, bearing in mind that it wasoriginally intended to serve national rather than regionalneeds. At appraisal, risks other than those listed above (cf.para. 10) were correctly identified, and certain measures wereappropriately included in the project; however, these measuresproved insufficient to prevent the foreseen risks linked to lackof experience in training technical teachers, in operating afull-scale textbook production unit, and in managing large.widely dispersed civil works.

(b) During implementation of the Project, the recommendation by IDAto use the letters of credit procedure helped to sustain theGovernment's efforts to restart and complete the construction oftwo ENIs (Natitingou and Parakou). The supervision missions onthe education aspects, relevant as they were, were neithersufficiently frequent and regular, nor performed with thenecessary personnel continuity to redress the situation.Technical and vocational-particularly agricultural-educationdoes not seem to have been monitored closely, otherwise theappropriate conclusions would have been drawn from the poorperformance of the Level 2 Agricultural Vocational Institute(CPA) and the failure to set up the three Level 1 CPAs. Thesetraining streams needed to have been reorganized in the ENIsaccordingly (cf. para. 1.12 (d) above and Part 111-7. Covenantreference 4.08).

1.20 Lessons

(a) Local constraints should be fully analysed and reflected inproject design;

(b) In implementing a project of this type, the approach to thetraining agencies, curricula and methodologies needs to bewidened to consider the whole of the education system to ensurethat the areas of project intervention selected dovetailproperly with the system.

(c) Closer and more coherent monitoring by IDA of the educationaspects during implementation would also be desirable, togetherwith IDA's active participation in preparation of decisions onthe Project, such as the formulation of training strategies andpreparation of curricula.

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I. Borrower Performance

1.21 Strengths and weaknesses

(a) Stable staffing at management level resulted in continuitybeneficial to the Project, and the financial audits recognizedthat the Project had been properly managed. The Project Unitmonitored the architectural studies extremely well and laterenergetically conducted parallel management of a defaultingcontractor to ensure completion of two ENIs. However, thedispersal of the personnel and other powers of the Project Unitamong several departments (Education - two Ministries -.Public Works, and Planning) hampered coordination by the PU ofcertain activities, particularly (i) technical supervision ofcivil works for the two ENIs that fell behind schedule, and (ii)supervision of equipment acceptance, which was not alwayscoordinated enough (for example, the mission noted the absenceof certain connection components of the audiowisual equipmentwhich is currently preventing assembly and utilization of theclosed circuit TV and the audio channels for training).

(b) Another weakness was that there was insufficient innovation inthe design of teacher training in the ENIs. A training systemshould have been proposed which, unlike the traditionaluniversity course, was (i) better rooted in the pedagogicalneeds at the classroom level, and (ii) organized in such a waythat a large number of teachers could benefit from short-duration training and thereby contribute significantly toimproving the entire education system. Adequate account w.-, nottaken in formulating the ENI training strategies of thecountry's true financial capabilities. This led to operatingbottlenecks (personnel resources in particular, though properlydeployed, fall short of needs in the present trainingstructure).

(c) The Borrower did not honor all of the obligations entered intoin the Credit Agreement, mainly due to inadequate financialresources (qualitative and quantitative improvement ofagricultural education; adequate number of staff residences nearthe ENls; and suitable resources for the operation andmaintenance of the ENIs).

(d) Finally, the choice of the construction contractor for two ENIsfailed to take account of probable capacity constraints.

1.22 Lessons

(a) The creation of free standing project units outside theGovernment's normal administrative structure should in mostcases be avoided, as it is both difficult and, in the long run,

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undesirable to grant such units appropriate authority tocoordinate project operations and handle contingencies vis-a-visthe national administration. Because they circumvent theGovernment's normal decision making process, the creation ofseparate ad hoc project units does not sufficiently contributeto long term institutional development. Operational schemes forproject management must be designed to allow investments to bemanaged within an institution's existing or revisedadministrative structure, with appropriate autonomy granted tothe responsible units to enable them to carry out their projectmanagement responsibilities. Furthermore, the experience of thisproject, in which four ministries were involved, demonstratesthe importance of having some coordinating mechanism at anappropriate high level so that problems of weak performancecould be dealt with.

(b) Insufficient determination of whether the bidder whose bid hasbeen evaluated the lowest has the capability and resourceseffectively to carry out the contract concerned, as provided forin IDA procurement guidelines, may prove extremely costly.

J. Proiect RelationshiRs

1.23 Relations between IDA and the Borrower were positive throughout theProject and their joint efforts enabled them to overcome the difficultiesencountered and in particular to resume and complete certain construction works.

1.24 Cooperation between IDA and the cofinancing agencies--Swiss DevelopmentCooperation and GTZ-was good in both Project preparation and implementation(visits to headquarters or local field offices, announcement of missions,communication of mission reports, exchange of correspondence and advice orapproval requests). The Swiss contribution was administered by IDA, as agreed.

K. Contracted Services

1.25 Architectural services. The system of association with an experiencedconsultant instituted for the design of the first ENI provided an opportunity foryoung Beninese architects to receive advanced training before assumingresponsibility for the other construction designs under the Project, at the costof doubling the projected time needed for the ENI studies. The fact thatdesigning the printing facility took nearly five times as long as planned was duemainly to the time taken to work up the agreement with GTZ, which moreover hadits own consultants supervise finalization of the architectural studies and theworks. Apart from a few technical details, the architectural design work wascorrectly carried out.

1.26 Construction contractors. Of the contractors retained afterinternational prequalification, only the one responsible for the Natitingou andParakou ENIs failed to perform its contract regularly. apparently owing tomanagement difficulties. The substantial delay led the Administration to ensure

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first restarting of these two project items by undertaking parallel managementof the defaulting contractor, then their completion on force account, at the endof the Project.

1.27 Equipment and furniture suDoliers. Fol'lowing international or localcompetitive bidding, or comparison of at least three price quotations, as agreed,goods were generally delivered in conformity with the contractual specificationsand delivery dates.

1.28 Technical assistance (specialists' services and training). Thetechnical assistance specialists who participated in the preparation andimplementation of the Project cooperated properly with the Borrower and madepositive contributions. It is regrettable that the technical educationspecialist's services provided for helping develop curricula and start-up teachertraining at ENI, Lokossa (30 months) was not used, and that the pedagogicaladviser was not involved at the time of preparation of the curricula and teachingstrategy (perhaps because of excessive confidence on the part of the governmentauthorities in the schemes drawn up; cf. also Part III, Section 7, Reference toCovenawnt 4.01 (e)).

L. Prolect Documentation and Data

1.29 Overall, the legal agreements (cf. Part III - 7) were appropriate,particularly those that were only partly respected, such as (a) availability ofhousing near the ENIs (the inadequacy of which is effectively hampering thecurrent operation of the ENIs, even though they are not yet operating at fullcapacity); (b) expansion and upgrading of agricultural training (the weakness ofwhich is one of the causes of the difficulties in developing the agricultureprogram at the Lokossa ENI); and (c) operation and maintenance (which are onlypartially assured for the ENIs). On the other hand, it was perhaps unrealisticto envisage the transfer--from the provincial ENIs, after they were closed, tothe new ENIs--of unsuitable curricula, inadequately qualified staff and obsoleteequipment (a transfer that was in the event minimal). Moreover, it would havebeen better if IDA had not waited until 1984 to draw the Government's attentionto discrepancies between the French translation of the Credit Agreement, whichit was using, and the English (and officially valid) text, even if no seriousmisunderstanding appears to have resulted.

1.30 rhe Appraisal Report constituted a useful framework for monitoringimplementation of the Project. However, the sharp reduction in the number ofannexes and the difficulty in reading some of them (particularly the summary ofspecialist services) sometimes necessitated, for both the PU and IDA, longerresearch within the "working papers" and other preparation documentation.

1.31 The mission obtained most of the data required for preparation of theProject Completion Report from the Project Unit, the ENI principals' offices, andCNPMS management. Data collection, however, was sometimes long and difficult; itis therefore recommended that properly organized and up to date files bemaintained in the future.

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

(1Naiies of Contractors, Specialists and IDA Staff have been deleted by IDA)

A. Introduction

2.01 This report examines the execution of the Second Education Project. thepurpose of which was to build and equip three Teachers Colleges (ENls) atLokossa, Parakou and Natitingou and a teaching materials printing facility atPorto-Novo.

2.02 The cost of the Project. CFAP 9,900 million, was financed jointly asfollow8s

CFAF Million

Teachers CollegesIDA Credit 5,075

Swiss Governemnt Grant 1.331

Benin 1,919

Teaching Materials PrintingFacility

FIG Government Grant 1,575

9.900.....

2.03 Management of the Sw'ss contribution was entrusted to IDA.

2.04 The agreement between Benin and IDA was signed on June 25, 1982. Itwas ratified by Decree no. 82-266 of August 6, 1982 and published in the OfficialGazette (Journal Officiel) of the People's Republic of Benin on August 8, 1982.

2.05 The convention between Benin and the Swiss Confederation was signed onAugust 1, 1982.

2.06 The arrangement between Benin and the Federal Republic of Germany wasentered into in February 1986.

2.07 Closure of the IDA credit and the Swiss contribution took place on June30, 1989, i.e. one year after the originally scheduled date.

2.08 The amounts were fully committed. The Project was completed overall12 months late.

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2.09 The Teachers Colleges were designed to train primary school teachersand lower general and technical secondary education teachers.

2.10 The basic design is that of professionalized schools devoted primarilyto initial training and in-service training.

2.11 Recruitment level initially adopted:(a) primary teachers: BEPC (lower secondary school

certificate) + 1 year of JIR

(b) secondary teachers: BAC (upper secondary schoolcertificate) + competition

2.12 Recruitment level adopted on opening of the schools:(a) asst. primary teachers: BEPC + average 4 yearsservice

(b) primary teachers: BAC + average 4 years service

(c) secondary teachers: BAC + average 4 years service

2.13 Duration of training:(a) primary teachers: 1 year academic + 1 year practical

training

(b) asst. primary teachers: 2 years academic + 1 year practicaltraining

(c) secondary teachers: 2 years academic + 1 year practicaltraining

2.14 Salient facts. The Project was based on the conclusions drawn from allthe studies geared to implementation of Education Reform in the People's Republicof Benin.

2.15 These studies demonstrated that the expected changes in the neweducation system could not come to pass without furnishing training, providingqualified teachers, and making high-quality textbooks available to students andteachers cheaply and in sufficient quantity.

2.16 The Project was dssigned to meet basic and urgent needs of theeducation sector, characterized by a scarcity of qualified teachers. It wouldat the same time enhance the impact of the efforts accomplished by the Governmentand all users of the education system to help improve the design of coherenteducation policies and strategies.

2.17 The Credit became effective on March 17, 1983. It was closed on June30. 1989, following one postponement of the Closing Date. This delay made itpossible to execute certain supplemental works recognized as essential to optimumcompletion of the ENIs.

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2.18 The credit lines were distributed as follows:

Category Description IDA + BeninSwiss Gvt.

1 Civil Works 662 34Z

2 Equipment and Furniture 1002 -

3 Feas of Local Experts 1002 -

4 Technical Assistance 1002 -

5 Training Fellowships 1002 -

6 Project Management 802 202

2.19 The Project was fully implemented, in conformity with the CreditAgreement, without exceeding the estimated total of SDR 12.2 million.

2.20 Although the physical elements were completed 12 months late, theyconform to the final designs for each Project component. All cost overruns wereabsorbed, thanks to the continuous rise in the value of the SDR in relation tothe CFA franc.

2.21 The civil works component accounted for the greater part of the delayand led to postponement of the Closing Date of the IDA credit and Swisscontribution.

Execution Delays in Relation to Contracts

iNI Contract Contractor's DelayDeadline Execution Tlime

Likossa 18 months 21 months 3 months

Parakou 18 months 59 months 41 monthsin Oct. 1989

Natitingou 16 months 60 months 44 monthsin Oct. 1989

2.22 Construction of the Lokossa ENI by one contractor presented no majorproblems. However, the same cannot be said of the Parakou and Natitingou ENIe.The contractor did not give full satisfaction, for organizational reasonsinternal to the firm. Despite all the offorts made by the Project Management andthe Administration to help the firm, enormous difficulties had to be overcome.The contractor found it extremely difficult to adjust to a rational work tempo.

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2.23 Anxious to avoid cancellation of the contract, the cost andrepercussions of which would be extremely heavy, the Administration called on thefirm to honor its comitments. Hundreds of meetings of every kind were hold inan effort to avoid the worst. Despite all this, and despite all its promises,unacceptable delays transpired. Penalties were applied in order to motivate thecontractor, but to no avail.

2.24 Despite all this, the Administration was compelled to relieve the firmof responsibility for the ENI works and have them completed on force accountsupervised by the Parakou and Natitingou Provincial Public Works Directorate.

2.25 At a higher level, the firm's unacceptable defaults compelled theGovernment to take draconian measures concerning it.

2.26 This firm is no longer authorized to bid on any civil works in Beninuntil further notice.

2.27 During execution of the Project all the civil works took place underthe supervision of the Director, Urban Planning and Housing (Ministry of PublicWorks and Transportation), Deputy Director of the Project.

2.28 The works to be completed on supervised force account concerns(a) a few small works at Natitingou;

(b) the supplementary works at Parakou and Natitingou.

2.29 The Administration regards these works as very important for optimumcompletion of the ENIs.

2.30 Upon provisional acceptance, despite the country's economicdifficulties, the Government opened the three ENTs. The first class graduatedfrom the Parakou and Natitingou ENIs in 1989.

2.31 The economic difficulties, which have thrown the education sector outof -ear, compelled the Lokossa ENI Administration to defer formation of the firstclass.

B. Protect Prenaration

2.32 The Project was IDA's first operation of this size in the formaleducation sector in Benin.

2.33 In February 1980, the Government of Benin requested World Bankfinancial assistance in setting up infrastructures for training teaching staffin the following localitiess

- Natitingou- Parakou- Lokossa

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2.34 Each of the three ENIs was meant to specialize in a precise type oftraining:

llatitingous training of secondary school humanities teachers andprimary school teachers;

Parakout training of secondary school science teachers andassistant primary teachers;

Lokossa: training of secondary school technical, science,humanities, home economics, agriculture teachers andassistant primary school teachers.

2.35 The appraisal mission arrived in 1982.

2.36 The Government of the People's Republic of Benin was the Borrower. Theformer MEMGPT, now HEMS, was the Project Principal (Ma£tre d'Ouvraae) and theformer MTPCH, now MET, the Project Executing Agency (Mattre d'Oeuvre).

2.37 Because of the lack of experience and precedents in the area of schoolinfrastructure construction, IDA asked that the architectural designs be preparedby foreign experts. An agreement was entered into between the Government andIDA. Preparation of the architectural dossiers was entrusted as followst

- Natitingou ENI one Beninese firm

- Parakou ENI one Beninese film

- Lokossa ENI four firms (of which three Beninese)

2.38 Technical coordination of the Project was entrusted to a Unescoarchitect, working in collaboration with Ministry of Public Works staff.

2.39 Proiect monitoring and supervision

(a) At national level. A unit was set up with responsibility formonitoring and directing the execution of the Project.

The Director, assisted by Beninese and expatriate staff,supervised all activities under the Project.

The Project Unit comprised:- a Director, representing the HEMS;- a Deputy Director, representing the MET;- a Deputy Director, representing the MPS;- a French Technical Assistant, assistant to the Director;- an accountant;- an Assistant Architect/Coordinator, representing the MET;- three worksite supervisors;- a representative of the CAM ;- a Unesco works coordinating Architect.

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(b) At local level. At the time of the worksite visits, thefollowing were present in each of the towns where TeachersColleges (ENIs) were to be located:- a representative of the DPET- a representative of the DPE- a representative of the Architect- a representative of the Contractor

2.40 The Project Unit, at the national level, and the monitoring units, atthe local level, were able to call on the expert assistance of all authorities,as and when the need arose.

C. Proiect Implementation

2.41 The Project Unit, enlarged to include all the Beninese sources ofexpertise, was responsible for directing and coordinating execution of all theProject components.

2.42 Thus, over seven years the various tasks were carried out for:

(a) Primarl and secondary education- construction and equipment for the 3 ENIs;- specialized services of Beninese and foreign experts;- further-training fellowships for training trainers,

maintenance technicians and the accountant.

(b) Teaching materials Drinting facility- construction and equipment of the print shop;- preparation of manuscripts;- development of a strategy of distribution of the textbooks

produced.

(c) Proiect Manaftement. This included specialized services formonitoring operating costs, project evaluation, and planningfuture projects.

2.43 The request addressed to IDA was carefully prepared in light of thesocioeconomic environment of that time. There was total participation by all theministries involved in the execution of the Project, and this facilitated thefollowing tasks:

(a) Selection of architects. Selection of the architects posed afew problems because of certain sensitivities. The combinationsproposed by the Government were ac:epted by IDA and this made itpossible to obtain good results.

(b) Architectural designs. The designs produced benefitted from twosources of expertise: IDA and Unesco. They were submitted toIDA for its opinion and approval at each stage.

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(c) Selection of contractors. The selection of contractors tookplace in conformity with the regulations in effect in Benin.During the selection process the contractors' performances wereto be a decisive criterion; unfortunately, however, havingregard to the probable costs of the contracts to be concludedbetween them and the Government, the cumulative values of theprojects exec'ited by each carried too much weight in the finalselection.

(d) Procurement. All the bidding documentation was submitted to theBank for examination. The contracts were awarded after theCredit became effective. The IDA rules governing procurementwere respected.

(e) Priority works undertaken- soil analysis;- site viabilization;- recruitment of technical assistants and consultants;- installation of the accounting system;- training of the accountant.

(f) Studies undertaken- sketches;- preliminary project;- project;- final designs.

(g) Furniture and equipment

(i) Furniture. The -trategy of having the furnituremanufactured by local enterprises was accepted by theGovernment and IDA.

The results obtained, using local materials yeresatisfactory, and t.~ s practice should be encouragedelsewhere.

(ii) Ecuinment. The consult;.uits and local experts did not do aparticularly good job of advance matching of the list ofequipment to the profilas of the teachers to be trained inthe ENIs. The objections of IDA were not very wellunderstood at that time.The result was a very exhaustivelist of equipment, the cost of which remained high.

Some of the ENIs, Lokossa in particular, today possessequipment items that have not yet been put i-Fo service.In the long term this equipment will be applied to initialand in-service training.

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D. Problems

2.44 Lokossa. The civil works were started at Lokossa in November 1984 andcompleted on August 27, 1986. They were executed in a proper manner and on thewhole have given satisfaction. Apart from the open-air theater, which has beenentirely transformed, the project was s3upplemented by a few additional works thatwere proposed in order to round out completion of the school.

2.45 Natitingou and Parakou. These two projects fell behind schedule,Natitingou by about 44 months and Parakou by 41 months. The poor performance ofthe awardee of the two contracts contributed to the accumulation of this delay.

2.46 Penalties were applied to the contractor but were lifted owing tofinancial constraints, which could ultimately have brought the contractor to astandstill. The sole object of this decision, which was quite a difficult onefor the Administration, was to help the contractor develop normally and at thesame time salvage the various advance payments made.

2.47 Despite the facilities of every kind extended to the contractor, theAdministration was compelled to suspend the civil works on the Natitingou andParakou projects.

2.48 The most urgent supplementary works and the remainder of the workscovered by the original contracts were entrusted to the Natitingou and ParakouDPETs.

2.49 Teaching materials print shop. The real problem here concerns thedifficulties encountered in preparing manuscripts.

E. Proiect Financing

2.50 The total cost of the Project, excluding taxes, was estimated atUS$25,644,000, financed as follows: US$14,056,000 by IDA, US$3,517,000 bySwitzerland and US$3,356,000 by the Government of Benin to cover all thecomponents except construction and equipment of the printing facility, which wasborne entirely by the Federal Republic of Germany (GTZ), at an estimated cost ofUS$4,715,000.

2.51 The foreign exchange costs were paid by IDA. The Beninese Governmentbore up to 201 of local currency costs of project management and 341 of those ofthe civil works for the Teachers Colleges.

2.52 These distributions, though fairly modest, represented a heavy drainon the Government's fund for financing its contribution to externally financedprojects ("Caisse Autonome d'Amortissement, CAM"), whose resources were at timesvery tight.

2.53 Owing to the sharp rise in the value of the dollar in relation to theCFA franc (the exchange rate rose from CFAP 270 to CFAF 400 during the execution

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period) the actual cost of the Project at the time of completion had increasedby 32X.

2.54 This appreciation of the dollar was beneficial to the Project as awhole. In particular, it enabled overruns in the civil works (original contractsand amendments). equipment, and first year operation of the ENIs to be covered.

2.55 The long disbursement delays noted at the start of Projectimplementation were progressively reduced-a very positive development.

P. Status of Credit Agreement Covenants

2.56 All the main provisions of the Agreement were duly honored. Those thatcould not be complied with, owing to the Government's financial difficulties, hadno negative impact on execution of the Project.

2.57 As an example: the Government had committed itself to provide teachers'housing, but was unable to do so during the execution period for lack of money.

2.58 The main provisions complied with concerned the following:- installation of an accounting system;- auditing of the accounts;- closing of the old Provincial Primary Teacher Training Schools;- training of 4rainers (the Government attached importance to

this);- full-time utilization of the personnel assigned to the Project

Unit.

G. Im_lementation Timetable and Credit Management

2.59 Postponement of the Closing Date was necessary not only to make up thebacklog built up by the defaulting contractor but also to allow the constructionof certain supplementary works and the installation of simple equipment which theteachers are likely to encounter in the posts to which they are assigned.

2.60 It also allowed the works supervisors to receive training, the cost ofwhich could be committed before closing the credit.

2.61 The Credit Agreement was amended twice:- the first amendment concerned disbursement percentages;- the second concerned the Closing Date.

2.62 Despite the delay built up over the course of the civil works, theauthorities have opened the establishments.

H. Borrower and IDA Performance

2.63 In the case of this specific Project, the Government's performance inimplementing the Project was very encouraging, despite a few cases ofbureaucratic slowness.

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2.64 In comparison with the implementation of other similar or smallerprojects, the Government gave constant attention to the following objectives:

- construction of ENI.;- installation of necessary equipment and furniture;- personnel training;- opening the schools and making them operational.

2.65 All these tasks were duly performed. The authorities were able to formthe first class at Natitingou and Parakou.

2.66 The second class was recruited and is preparing to enter the ENIs.

2.67 Rigorous monitoring, supervised by the Ministry authorities, andregular visits by IDA missions made it possible to achieve these results.

2.68 The Project benefitted from supervision by and the advice of an IDAarchitect.

2.69 IDA performance gave great satisfaction to all parties involved.

2.70 The performance of the other consultants, both private and government,was also greatly appreciated.

I. Conclusions and Lessons

2.71 The major physical elements of the Project were executed satisfactorilydespite some delays and a cost overrun, which was fully absorbed thanks to thefluctuation in the exchange rate.

2.72 Selection of contractors of adequate and similar capacity would haveyielded more satisfactory results.

2.73 Considering the scale of the Project, the management unit did notalways enjoy all the authority necessary for its execution.

2.74 Execution of the Project was facilitated by the relative autonomy ofthe Project Unit; however, this autonomy always created difficulties vis-a-visthe administrative hierarchy.

2.75 Care should be taken in future projects to specify clearly the autonomyaccorded to the Project authorities for the proper performance of their tasks.

2.76 As implementation of the Project advanced, the availability ofGovernment financing declined. In future, this question should be settled inprecise terms before committing the Government authority in a project.

2.77 We suggest that future education projects should be entrusted tospecialized, dynamic and experienced Beninese professionals.

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2.78 For the preparation of the Third Education Project, the Governmentshould define the broad orientations in an administrative framework, with a local

unit, comprising the professionals mentioned above (para. 2.39) that would be

responsible for the entire implementation of the Project.

Porto-Novo, November 29. 1989

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PART III. STATISTICAL lfwATiHN

1. Related IOA Credits

Title am Year KMp=s Status mg COMINaSof DpwrcvI

Cr. 58-W 1. Novor dmiqomn (Irdstrial motor It Credit in clou cn 124 2.First Edmtim Propot au offIce nmms. lb letiOn reIort dtod 101/U(1An EtlEn 2. ReWnizatlm and atrngtming of the Indiated flat remits b lned wrnud Training Projewt) rationa training program for the ial dispolnting, minly do to ti fr"ur1975 YO. politloal diwig , administratlve ad

3. Prepratin of a fol io*4v projewt an bxteary ctrints ad to sevaledzatlcn .or training. prbim co rning tralning, mirvisisn

and tednical atiste.

Cr. 2M4EN Flellng of u. and d n eolrt" T1 credit es efftiv cn //90.Str,tura Jd jdint during tm ewtiun of the natioal Mxt of thu rewired onditlns forCredit (SAC) eclus-o strulxi adjusthit prog ra the ies oth fus I tran1a oft fl1989 (ESD1). The objectives warning tM SC me fulfilled at th tin of ft

edmation/training sector ar: Onuieticn Miicn (5 aldoummalre1. Catimatim of the dotailed revie of the 8/-47A90 Spervielnof wrioritles 1 forwlatim of a sectorml Mlien).sratW and action plan. lh Natiami mltee for EW e1IidW

- 2. foVarition Nd adoption of a pim a OM H fm suocuttt illn dwpto iwmrem tim Pwpls/teedr ratio. of the eimctinAvraining stor.

- 3. eterminrtIon of bjective for aomit A uctaral stay Is being cried sVtramiary related e ge u1a since Hey 1989 uar a DWof the minin. amnm aI locad for project to help the lvrmnt fowiat aprimry eduation. seitoral policy, a mdlia tem Strateg Od4. Oealpmnt ard adwtion of a prgi an action Progrm In vim of a ruedto reo f rM." of hiur uOation table of "Mms to tu pI=o by a 1191.

ularehips uMlI as te dtheaocated to iopriority speializati'.

Cr.2031uu lrw Im orSpnizatln an _g Int of Tm Credit Agreemnt IvtaWODeloput of Multh th SIth stn, I1ceMe the oflolw sn 1/10 l Mmt activitiesSvls Pprojet of flmmial reuren asi locain fr. the plumd dirln ti project ImIdi1981 phI c motor ard reinfraed m w1 tohn Apurep (10/7-16U) a

WaN. m quality of the bsic heIth - uwriulng4 delap dn mIniy tosi"i ba prIeMitw ad ourtiv) tim me.nmio, f Wmisl " fmlal011olally In the nral uar (Atera, probim of the my" At thmm ard Atintic Province). i Promjt rmt politiali dMang

provids pmrtlarly for abinisrtlwad teuical training Of the pru-1lamd aid for th deist of aIulth sdtlm pro0 aimd at thnrai pbllc.

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2. Project Timetable

Date Planned Date Revised Date Actual

identification mission 9/79 (1) 1015-17179

Preparation Mission 4180 (1) 1112-217180

Pre-appraisal Mission 7180 (2) 6129-717180

Appraisal Mission 10/80 (2) 12180 (3) 5/5-15/81

Credit Negotiations 4181 (2) 12/81 (4) 2/16-19/82

Board Approval 7/81 (2) 2/82 (4) 5/13182

Credit Signature 6/25/82

Credit Effectiveness 10/25/82 1131183 3/17/83

Credit Closing 6/30/88 6/30189 6/30/89

Final Disbursement 6130/88 12131189 2126190

Sourcess (1)- 3112/79 *Project Brief (PB); (2) 2121180 PBs(3) 6/9/80 'Back-to-office Reports; (4) 5/8/81 PB.

Appraisal was delayed by the queat for cofinancing, the definitionof training programs, the establishment of the Project Uhit,the relocation of 2 of the 3 Teachers Colleges (EN!.), and therecruitment of the archlitects (contracts signed in Januaryand March 1981).

Negotiations were delayed pending the satisfaction of conditionssuch ass architectural preliminary studies: ezpansion program forthe Agricultural Vocational Institute (CPA) at Sekou and developmentof three new ClAss draft decres granting autonomy of managementto the Printing Unlts and recruitment of technical assistancefor the Project Ult.

Effectivness ase delayed by the issuance of the Govermaent'slegal opinion (issued on 1115182) and the signature of the GrantAgreement with GTZ (cofinancier); this last coandltion was finallywaived.

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3. Credit Disbursements

Cumulative Estimated and Actual Disbursements(in millions of US$)

IDA Fiscal Year 7/1/1982-6/30/1983 1984 1985 1986 19 1988 1989 1990

Appraisal Estimate 1.2 3.2 7.2 9.4 12.2 14.0Actual .9 1.2 3.0 7.8 10.8 12.5 13.4 14.2Actual as Z

Estimate 75 38 42 83 89 89 96 101

Date of Final Disbursement: 2/26190 (value date: 3/5/90)

Time lise showing planned and actual disbursement scheduless

711

10,0

9

3 1

4. Proiect Imolementation

Indicators Aloraisal Estimate Actual

Opening of ENls 10/85 12187 (1)Training of ENIs' Teachers (end) 9/85 6/86-10188 (2)Training of ENIs' MaintenancePersonnel (end) 12/84 6/90 (3)

Textbook Production (start) 1/84 2188 (4Training of Project

Personnel (end) 12186 6/91 (5)

(1) Delay due to difficulty in obtatinig satisfactory bidding documents ad due Co tae maerlialproblem encountered by the construction firm at Hatitingou end Parakon.

(2) Delayed by the development of the training progrems ond Jby the selection of feloUanq precipients.

(3) Delayed by the need to maintain che selected technicians (construction site supervisors) oneach site until its completion.

(4) Delay due to difficulties in finalising the BensJeus-CTZ Grant Agreement aad lasufficieatcapacity of manuscript production.

(S) Delaye4 by the lmpossibility of replacing the local Accountant during aa *baece onfellowship; his upgrading abroad (1-6191) was prefinanced by the IDA Credit under tha scontract as that concerning the above meationed Mainten anc Personn-l.

U.S. A detailed comparative implemencation tlmetable is enned.

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5. Proiect Costs and Financinx

A. Proiect Costs (Net of taxes)

Amounts in thousands of USS Amounts in millions of ClAPCategorl Appraisal Actual Diff. A2Draisal Actual Diff.

Civil works (1) 14,218 17,853 +252 3,839 5,734 +49ZFurniture & (2) 4,177 7,186 +722 1,127 2,308 +105ZEquipment

Local Fees 1,210 956 -21Z 327 307 -6SConsultants (3) 4,695 2,840 -40X 1,267 912 -282& T.A.Fellowships (4) 605 797 +32Z 164 256 +56ZOperating Costs(s) 739 1,582 +1142 200 508 +154Z

------------------------------------------ __---------------------

Total 25,644 31,214 +222 6,924 10,025 +45X-----------------------------------------------------------------

Average exchange rate for the Credit disbursement period (5/7/83-315/90):US$ 1 - CFAP 321.17

Appraisal exchange rate: US$ 1 - CFAP 270

(1) The buildings constructed respected surface areas indicated in the initial schedule butinvitations to bid were delayed by about 2 years, and a more favorable exchange rate permittedthe carrying out of external improvements and other useful works (sports fields, traditionalkitchens, etc.) planned as alternatives, and to supplement the national financing for certaininstallations (water towers and electric transformers).

(2) The impact of the delay vas compounded with the necessary adaptation to the development of newtraining programs.

(3) and (4) See annexed comparative tables.CS) Implementation of the project required two to three additional years; also, the transfer to

Cotonou of the responsible Ministry and the localization there of other concernedadministrative departments, as well as parallel management by the PU of a faltering firm onthe mexre remote construction sites, increased transportation, mission and communication costs.Moreover, it was necessary to supplement the national contribution to the operation of theENlIs to a larger extent than expected.

B. Proiect Financing(in 000 of US$, net of taxes)

Source ADpraisal Estimate Actual Difference

IDA 14,056 (552) 14,216(1)(462) + 12Swiss Contribution (2) 3,517 (142) 3,554 (lZ) + 12GTZ Grant (3) 4,715 (182) 8,059 (262) +71ZBenin Government 3,356 (132) 5,385 (172) +602

--------------------------------------------------------

Total 25,644 (1002) 31,214 (1002) +222--------------------------------------------------------

(1) Calculated from the detailed computer print-out of all disbursements from this Credit Account.This figure differs from the figure of 14.08 million given in the statement of DevelosmntCredilts. Efforts to ascertain the basis for the total of 14.08 have been fruitless.

(2) Joint cofinancing administered by IDA, equivalent to +25X of all amounts financed by the IDACredit (in other words in the rates 80:20), up to a limit of SwF 7 million.

(2) Parallel cofinancing of the entire "Prcduction and Distribution of Textbooks" component.

- 29 -

C. Wlthdrawal of the Proess of the IOA Credit and of tho Swiss Contribution

IDA Credit (SOR) Swiss Contribution (SwF)

Category Allocated as Allocated as X financedat Credit OIsbursed at Credit DlsbursedSignature Signature (1)

1. CIvIl works 5,580,000 6,050,0596.8 3,200,000 50 then U2. Furniture and 1,540.000 3,333,296.66 68JO000 80 then 100

equipment3. Local Fees 490,000 407,385.06 280,000 60 then 1004. Consultants' an 1,400,000 624,208.59 600,000 (2) 100

specialists5. Fellowships 360,000 508,698.50 200,000 100f. Operating costs 110,000 418,059.79 60,000 s07. PPF 8900000 658,351.41 - -

8. Unallocated 1,840,000 1,580,000

12,200,000 12,200,000.00 7,000,000 6,725,737.20

(1) AMnded 1/31/84(2) Breakdown by cateory not available

- 30 -

6. Proiect Results

A. Direct Benefits

Appraisal Estimated at Estimated atIndicators Estimate Closina Date Full Develp,.

Student capacity of thethree new ENIs 1,195 1,195 1,195

Number of ENIs' graduatesper year 935 445 (1) 935- Primary School Teachers 675 240 (2) 675

and Assistants- Lower Secondary School

Teachers 260 205 260of which

- general education (189) (187) (190)- technical education (39) (5) (39)- agricultural training (20) (3) (20)- home economics (12) (10) (12)

Establishment of a Printing Unit 12/31/82 12/11/82

Annual production of textbooksfor Primary and Lower SecondarySchools 470,000 (3) 26,200 (3) 800,000 (3)

Average sales price per book US$ 1.50 US$ 2.05 (4) US$ 1.45 (4)

Sales price per set of booksfor the first grade US$ 3.00 not available (5) US$ 1.80 (4)

Sales price per set of booksfor the final grade of LowerSecondary Schools US$ 10.50 not available (5) US$ 13.50 (4)

Textbook storage capacity 1 central 1 central 1 centralwarehouse + warehouse (6) warehouse6 regionalwarehouses

Distribution system INFRE/DPE INFRE + book- Selling bynetwork shops Publisher (7)

or by CNPMSdirectly inthe schools;bookshops.

- 31 -

(1) These are assistant primary teachers and assistant lower secondary teachers(at present on practical training) who will graduate from the ENIs at theend of this academic year after three years of training. This year, 72primary teachers graduated after only two years of training.

(2) Of which 15 primary teachers and 225 assistant primary teachers.(3) Excluding the production of notebooks, of secondary textbooks and precis on

behalf of "Editions du Flamboyant" (semi-private publishing firm), and ofmiscellaneous items for private clients.

(4) Price for 1990 deflated by about 1.8 for comparison with Appraisalestimates, and at appraisal exchange rate of US$ 1 - CFAP 270.

(5) No data available as no complete set has been published yet.(6) The Government and GTZ have decided not to build the regional warehouses as

they resolved to emphasize private distribution.(7) In case the Government chooses the option of having the distribution made

by a private publisher.

B. Studies

Purpose as Definedat A&graisal - Status Impact of Study

Preparation of a (a) General speci- (a) Discussions withmaintenance program fications for sub- the architects andfor project sequent maintenance subsequent adjustmentinstitutions of infrastructures during architectural

prepared for each design work.institution by aFrench specialist(11/82).(b) Needs concern- (b) Training ining maintenance spe- maintenance (11/89-cialists for the ENlIs 6/90) at CUCES, Nancylisted and commented (France) of the threeupon by a French spe- site supervisorscialist (12/83). before their

posting to theirrespective ENI.

Evaluation of the "Provision of text- Contribution to (a)use and impact of the books for the school the development ofeducational materials system in Benint a textbook nationalproduced under the proposals for the policy; (b) a betterproject. creation of an definition of publishing/

acquisition and production/distributiondistribution system" functions;and (c)orga-prepared at the nization and financingrequest of GTZ by two of CNPMS to optimizeexpatriate specia- production.lists (11/89).

- 32 -

7. Status of Credit Aareement Covenants

Soctlgu Subiect Status

2.03 Closing Date Extended on 6/17/88 from 6/30/88 to6/30/89.

3.01 Withdrawals of Percentage financed amended (1/31/84).Credit Proceeds as Reallocation between categoriesper Schedule I of agreed (11/3/87).Credit Agreement.

3.08 Procurement Agreed procedures applied.

4.01 (a) Diligent and Economic difficulties restricted theefficient project provision of necessary resources.execution.

4.01 (b) Revolving fund Increased from CFAF 5 million to 8.5million (5/84).

4.01 (c) and Personnel and The Project Unit was staffed and5d) powers of the empowered as specified in the

Project Unit Credit Agreement; however, thedispersion of personnel betweenPorto-Novo and Cotonou and thedivision of powers among severaldepartments hampered the coordinationand control of certain projectactivities and made the operationof the Project Unit more expensivethan foreseen.

4.01 (e) Consultants' and Those services that were provided wereSpecialists' satisfactory but the Technical Educa-Services tion, Evaluation and Planning Spe-

cialists were not recruited, mainlydue to delays in project iplementa-tion, insufficient number of technicaleducation trainees, and to a re-allocation of Credit proceeds to allowfor training of more ENI teachers andfor basic operation of the ENls;evaluation of the textbook componentof the project was financed by G T Z(cf. 4.03-e).

4.03 (d) Project Unit Submitted on 12/6/89Completion Report (of. Part II).

- 33 -

4.03 (e) Evaluation of the The delays experienced by thistextbook production component did not permit thecomponent (not finalization of the study (financedlater than by GTZ) until 11/89 (given to12/31/86) the Completion Mission on 4/90).

4.05 Housing for ENI Notwithstanding commitments made bystaff the Government (letter dated 6/15/84)

the personnel of the ENIs havedifficulties in finding satisfactoryhousing (especially at Lokossa).

4.06 (a) Adequate qualifi- Good qualifications.cations of thefellowships'candidates.

4.06 (b) Training programs Agreed with IDA.and costs to beapproved by IDA.

4.06 (c) Employment of Generally consistent: recipients ofrecipients of fellowships were employed by thefellowships in ElNI, by INURE and the CPs. Howeverpositions one fellowship holder (chemist) hasconsistent with abandoned the training course andtheir training for another retired a few months afterat least 2 years. her return.

4.07 (a) Transfer of Programs were modified; only smallprograms, personnel, part of personnel was transferredstudents and (lack of qualifications); theequipment from the equipment was not transferredold to the new ENIs because it was obsolete;

new students were recruited.

4.07 (b) Closing of old ENIs Done; the buildings of the old EIlsas soon as the new were used again as classrooms forones were operational secondary schools in line with

their initial conception.

4.08 Increasing enroll- The enrollment doubled in upper CPA,ment and upgrading of Sekou in 1982 but there was noupper CPA in Sekou upgrading and lack of resourcesand creation of 3 new did not permit the creation oflower CPAs any lower CPA (the financing of

I lower CPA In Natitingou is presentlybeing studied by BID).

4.09 Legally establish- "Arret6 interminist6riel No. 10921

- 34 -

in8 a separate MEMGTPIMEMB/MIP/DGM" of 12/11/82printing unit establishing the "Centre Nationalwithin MEMGTP (not de Production de Manuels Scolaires"later than 12/31/82) (CNPMS).

5.01 Accovnting and Even if sometimes late, theauditing accounting,procedures financial and auditing reports were

regularly prepared; at the beginningof project implementation, the auditfirm (selected by the Project Unitwith IDA's agreement) helped theProject Unit in establishing anaccounting system and relevantaccounting procedures, and theycertified in their annual auditreports that these procedures wereduly applied.

5.02 Operation and Financial difficulties led to amaintenance of reduced utilization of physicalphysical plant plant and an increase in

IDA and Swiss Contribution'sfinancing of the operating budgetsof the ENRs. The maintenance programswere prepared as scheduled but thepersonnel concerned (presently intraining abroad) will not return totheir posts before July 1990; this,combined with insufficient budget andshortage of other maintenancepersonnel, will Lelay theimplementation of these programs.

7.01 Effectiveness Met; except in the case of theconditions condition that the Beninese-GTZ

grant Agreement be duly entered into;on 3117183 this was waived.

7.02 Effective It was postponed first from 10/25/82Date to 1/31/83 (on 9/28/82), then to

3/31/83 (on 1/31/83)g the CreditAgreement was declared effectiveON 3/17/83.

- 35 -

8. Use of IDA Resources

A. Staff Inguts

Stage of Proiect Cycle WeeksThrough Appraisal 82.6 (1)Appraisal Through Board Approval 111.6 (1)Board Approval Through Effectiveness 17.1Supervision 84.2Completion 18.0

Total 313.5-----------------------------------------------------------..---

(1) Cf. comments in Part III - 2 "Project Timetable" above.

B. MissionsNumber and Staff

Month/ Specialization Days inMission Year of Particip,ants Field

Sectoral Study Reconnaissance 4/77 1 (GE) 10

Sectoral Study (Unesco CP) 4-5/78 5 (E,AE,GE,TE,MT) 105

Follow-up to Sectoral 8-9/78 1 (3E) 4Study (Unesco CP)

Pre-identification 9/79 1 (GE) 1

Identification (IDA + 10/79 6 (E,AE,2GE,TE,S) 78Unesco CP)

Evaluation of printing 12/79 1 (TP cons. Unesco CP) 4capacity

Preparation (Unesco CP) 1-2/80 6 (A,E,AE,GE,TE,TP) 153

Post-prep. 1 (IDA+Unesco CP) 3/80 3 (A,2GE) 21

Post-prep. 2 5/80 1 (E) 6

Pre-appraisal 1 (IDA + 6-7/80 5 (A,E,AE,2GE) 39Unesco CP)

Pre-appr.2 (visit to Unesco) 8/80 1 (GE) 3

Pre-appr.3 (briefing at 9/80 1 (TP consultant) 1Unesco)

Pre-appr. 4 9/80 1 (A) 1

- 36 -

Pro-appr. 5 (visit to GTZ) 10/80 1 (E) 1

Pre-appr. 6 10-11/80 1 (TP consultant)

Pro-appr. 7 (visit to 11/80 1 (GE) 1

Swiss Dev. Coop.)

Pre-appr. 8 12/80 1 (A) 4

Pr--appr. 9 (vis.to Unesco) 1/81 1 (E) 2

Pro-appr. 10 1/81 1 (TP consultant) 4

Pro-appr. 11 2/81 1 (GE) 8

Pre-appr. 12 3/81 1 (AE) 7

Appraisal 5/81 7 (A,C,E.2GE,TE,TP) 63

Post-appraisal 9/81 2 (A,TE) 21

Pro-negotiations 12/81 1 (LO) 6

Post-negotiations 3/82 1 (LO) 9

Number andMonth/ Specialization Days in Performance Rating by

Mission Year of ParticiDants Field Tvne of Problems

F M D G 0

Suiervision 1 6/82 2 (E,AE) 10 - 2 _ _ _

Supervision 2 8/82 2 (A,GE) 6 - - _ 1 -

Supervision 3 12/82 2 (E,GE) 10 - - _ _ _

Supervision 4 2/83 1 (A) 6 - - _ _ _

Supervision 5 4/83 2 (FA, E) 2 - - _ _ _(during sect. mission)

Supervision 6 6-7/83 2 (A cons,AE) 30 - - - - -

Supervision 7 10-11/83 2 (A cons,GE) 11 - 2 - - 2

Supervision 8 2&3/84 2 (A,GE) 10 2 2 - -

Supervision 9 5184 1 (A) 7 - - - - -

- 37 -

Supervision 10 6/85 1 (FA) 1 - - - 2 2

(Project Unit 8/85 Proj.Dir. & A 10 - - - -mission to Washington

(Meeting in 11/85 1 (A) & Pr.Dir. 1 - - - - -)Burkina Faso

Supervision 11 3/86 1 (GE) 5 2 2 2 2 -

Supervision 12 4/86 1 (A cons.) 11 2 3 2 2 -

Supervision 13 6/86 1 (A) 6 3 2 2 3 -

Supervision 14 10-11/86 1 (GE) 10 3 2 2 3 -

Supervision 15 11-12/86 2 (A) 10 3 2 2 3 -

Supervision 16 1/87 1 (A) 7 3 2 2 3 -

Supervision 17 3-4/87 2 (A,GE) 18 3 2 2 3 -

Supervision 18 10/87 1 (A) 8 3 2 2 2 -

Supervision 19 1-2/88 1 (DO) 1 - _ _ _ _

Supervision 20 2/88 1 (A) during 1 - _ _ _ _health mission

Supervision 21 4/88 1 (A) 6 2 2 2 2 -

Supervision 22 11-12/88 2 (A,GE Unesco 24 2 2 2 2 -consultant)

Supervision 23 6-7/89 2 (OA,GE Unesco 22 2 2 2 2 -consultant)

Comgletion 4-5/90 2 (A,GE Unesco 25consultant)

Symbols:

Soecializations: A a Architect; FA a Financial Analyst; Oh a Operationa Analyst; C a Division Chlef;DO a Disbursements Officer; LO - Loan Officer; E - Econamist; ASi Agricultural Educator; GE -General Educator; TE a Technical Educator;MT a Management Training; TP - Textbook Production; S * sociologist.Performance Evaluation: I - problem free or minor problems; 2 a moderate probleam. 3 a majorproblems.Tyne of Problems: F - Financing; M a Management; D a Impact on DevelopmentsG a General performance; 0 - Other.

Annex :

BENIN - Second Education Project (IDA/Swiss Development CooperationJCTZ)

COHPARATIVE IMPLEMENTATION TITETt.BLE

1981 1982 1983 1984 1985 1986 1987 1988 1989 1990 1991

rri -i-ri r ., wrT wrT -rT- -m -in m-, T- m -r

Effectiveness

Closing Date

ENIaCivil works - - - - - - C-C - - - - - - - - - -

Lokosea _ C CC C-

Natitingou/Parakou C C CG- 11-

Furniture/Equipment _- - -C C- -c z C C- C-C_---Local Specialists ----- _- -- _ _-_ _ _ _ _ - -- C____ -

Ccnoult,nts and TA - - C-- - - - - - - - I- -_ _---_

Fellowships - C- C C___ _ _

Operating Costs -- C C-___ -11_ __- I-

TextbooksCivl vorks C C--C- c_

Purniturelequipment - - C C- - -_ - -C _ C

Local Specialists - - - - - _ -11--_ _-

Consultants and TA - C C C C _ _

Fellowships CC - -C - - - - - - - - - - -

Management, evaluationand planing of projectsfurniturelzquipment - C C C

Consultants and TA - _-- _ -__ ----- _ __--_-

Fellowshlps -c c -- C- - - - . ..

Operating Costs - - - - - - - - - - _ _ - -Jl-_ _--

C - Iiddins (1); - - - - - Appraisal estimateg * Actuall II - Continuation (off 2nd project)

(1) from bid Invitation to start of contract implementation

M1IN - Second Education Projeoct (IDA/Swis Devolopment Cooperation/.TZ) Annen 2

COItPARATIVE TABLi OF PROJECT COSTS

A a Appraisal Estlmte; S a Actual Costs

(is millions of CFAF, not of tones)

2 *. 4 5 6

Furstero. Co"eslteats Operatlag

Civl Iseks EIpsea Local Fe s Tocelacal Assist. Fellowship. Cot$ Total

A S A a A a A a A a A 3 A a

E~ ~ ~ ~ ~ ~ ~~~~~~-- ----- - - ---------------------------------

Ntlttisgs" 614 1,102 124 269 6a as -- 26 -- -- 2 1i

Parakee u1.08 1O ,C 146 841 so 92 225 a6 99 261 a 30 6,029 7,668

(8) (8) (8) (3) (3)

LWeAese 1,us 2,a 4n1 1,029 1t1 92 -- 1a5 -- -- 4 61

Toutbseks (1) 156 609 401 600 14 16 m0 867 20 -- 1S0 183 1,274 1,764 (2)

40 * 40 .

bs . * Plaslmg - - 2 8 - C 12 869 46 5 41 226 621 663

Totels1mala # IDA.Swiss Co. * 6U I'm3 5,4 1,121 2,80 321 801 1,267 912 164 260 200 600 6,924 10.026

Persml% Of TaI W51 Big 161 281 5x ax lox oX 21 81s 8a 6X 0oox 30X

(1) 1004 615 1 iamlag (with AOm eucetlo of o a fias*e. by Seais * IDA)

(2) witvalest to Sn 10.6 1i3ll3(8) Total coot tor t*o tkco Well

S .

Annex Spage I of 8

SENINSecon Education Project

(DA Credit 1246-U

POJECT COWLETIN EPonT

CWAPATME TAILE OF TECRIRCAL SSISTANCE SPECIALISTS

Nmb_r of Sp.olosits Toatl duration Starting Date Coats Ir(is month) us,

Project Component $pecisllmtieno Estimate at Actual Eotinsto at Actual Estimate at Actual Estlmatd/ Cexmante

Appraisal Appraieal Appraisal Actual

st Copent

Train of primry EAIpot 2 2 4 8.6 6/61 */01 40,000 Twe spe*aelIste,

ed low _ seoncnry 22,400 both recrulted

ucWol teoodre by Unoeco)

7ur.itero 1 1 2 3.0 0/62 7/38 16,000 One French821000 Speclallst

Mlait I I O 8.2 1/32 10/32 30000 One French23,00 SpecIallst

Technical a - s0 - 6/66 - 225,000 Position not

Iduetlo 0 filled (1)

Pedagogice 1 I 10 10 6/82 6/93 30,000 Benines-/Frencb

Advise 94,200 Spectallt

(3) Cf. trt III - 7.1.01 ( )

page 2 of 8

Number of Spoeellalta Total durotlon Starting Dat. Coats In

(io mouths) 51011

Project Component Spoclioatio Estimate at Actual Eotlmt at Actual Estesto at Actual Etimated/ Cor-nnts

Appraieal Apprsn al Appralsal Actual

lad Campo""e

Production and Chlof Tecb. I 1 42 as 6/62 12/85 811,000 Supplied by CT2

dietriblatie of duer ui.s. until 11/1U.

teathook4 thon printingspecialist

Photoco.po.i- 1 2 24 84 10/03 11/sa 160,000 Suppliod by C1Z:

tsoe, photo- a.m. one specialist

rprodetlo until 4/69, he was

NW offset then roplaced by

pog ettiag anothor

o ffst 1 1 8 U 10/t 8 11/80 240,000 Supplied by GTZ;

Pristiug1" n.m. this specislelt has

eleo been Chlof

Toechn. Advisorsince 12/Se

loduai ol 1 _ 10 - 10/83 - 120,000 Position not

heoo-bisdlsg 0 filled

NWd atitbehag

Personnel I _ 4 - 10/I1 32,000 Position also

tUsis0g and s.*. filled by offset

oqaipes_t Prlnting Specialist

Curriculum I - 42 - 1/S2 - 81t,000 Position not

veo1in_ *sd r.o. filled

Ae.hite.t as 8 * Supplied by 0Tht1~~~~~~~~~~~~~~~~~~~~- e .p e l mile t

* usti I 618, threa

!'~~~~~~~~~~~~~~~~~~~~~~~~~~~ Pegitlee mt 90,0-

;ffit.~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ao -a * . .neeias

Ann.a 3page a of a

Numbor of Specilleto Total duration Starting Dnte Costs In

(in *ontho) USs

Projece C4 poetn Speciallzation Estimate at Actual Estlto at Actual Estimate at Actual Estimated/ Coumentr

Appraisal Appraisal Appraisal Actual

3rd Cempemest

FProject owagemosA, £Inta t I a 00. 59 1/82 10/32 500,000 Supplied by

*nlealeo trojoe 00,6500 Froach firm

_m plaseegS Irector

Coordleator of I 1 S4 48 1/82 6/02 405,000 Recrulted by

civil works 412,500 Unseco

Assitant I 2 86 49 6/82 8/33 144.000 One local civil

Coordleter of n.s. servant until

civil worbo 11/Jt, thentoplaced by

another >

Aeouatimg 1 1 12 12 12/01 4/82 120,000 Supplied by

am aeditg n7,400 locally baeod

firm

Project 1 - 9 - 1/3t - 67,500 Position not

Eveleatlee 0 filled (1)

project a 12 - 1/"6 - 90.000 Position not

PleasIng 0 filled (1)

(1) Ct. P*t III - V.4.01 (e)

Ann6X 4

- 43 -

BENIN

£.. Sd.p.aa*~..e(MA Credis 1244.go

Pi.)m TumT of Trel"ims los1tiom of To. SW"a* Cowe_*ms I IN e -A*** of Tm&mlio O _meOl is Usie

I - (doosIino. 1101)_I D.4 *.tua eatme _oes _ siie o_ smies "l. lb W. SO u"..

- ~ ~ _-

*eiw| gad ginmi odwemelom 4 10 40 41.n US lo/Ui 10,6100 Shiml (Sgo.. seen IS soein (:Le.)~ te.e.e..e ed111s..'i 18 so &9U I/1111 o418/ 140.0=0 ii f.e ggonmjg

Ihelm (9%)' Shin (We.)

sgrlmle.ium2 4 2 40 W. 1/US t1 1/105 2 fe ie

_*"_im ef 7 wtejl*sCseulog s hiv mmd_"

_ - V- .,

hlo. de.min

ggiSl"_ j l _ 20 - = 1/ - 06 imme e

i wnfitp

- - - - - - -g

wwiewas_ owi_pelaSleg 8 * - "

of toetb.5 ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ *d= tl o

I -* . 5.0 n wo.* .

- - - - - -_ __

* -. UWU%NOU. U~ -X Si'1

ANNEX 5MUIStRE DES fiNANCES - 44 _ Page 1 of 2

LK MINISTRE OES FINANMCCABUNET, I

me ' /C SP

Objet:A L'A80ZAION _hONAZ

1818i I BE N*W. WAWZM DO 2043

U. S. .

Obiet t A/S Rappait 4'acbbvemt du Dsiim P=3Zot d''UUn

(o4dit 3tL N 1246 - ME).

.Uumme : L/UO/PSA/2977 da 25 Juillot 190

P= lettse o±tdo an :dUfu, 1 is le bumsde codhmt±m des

astifitds opdmUt±omel de Oa 1'UUUDO u's tminin po avis 1z zqmt

vi6 a rb ost.

En rdpao, J'ai. 1i'ouns de pwt & o ------ quo

1'dtude du d.. e appelle la pit do 1'M Aatut' = mis s mO

'atmans nivanus a

I - SMLLZ

1*0/ U.4e ds a t

- D a z (mDzt±m 1D man Ged lo sa 1.15 mm

1950) au lieu de D P S (mzstua Pzovialsde lt4 i'suig.nMt).- B 3 T (mzsoatin Ddpmtmmt&ui de I'ZIuliit at dus binspets)

&a l1U de D P E T (Dmtso P imilde . 1'Up t stOde beumpints

2'/ Pap 1-5 -116.

Da d 1; oi 4. 4. 3E I I _Oq2htW. VW

(htitS,Ip et PY_ncw)-

* 1', P._ 'am1gmtt in mtm

Xottm q 1'fIt de loenta pm is pininl d_os

ima Ninias Iatdpd.s 1 4am peti aoptables - uoiti ps Us ob4-

tAt. ds da I, aims aot pVW Ubs _ pM Us _

ANNEX 5Page 2 of 2

- 45 -

au 11u de "=La petubs 1 foactica nnt. E feft la mLootioaL

pso.ot *stio quw *'11l st ,aL que le odt don lag&mta net u pm 61X

par appot an zvo CleouasluAts, cOla aa au.o couma1qumm a le

owt±oue t de 'lt0ole.

2 / PU 1m6.mm9i * oOflE i t± m

Cmputeo le loz wa e (a) pM I On raaia SW VM Atl

4aas l'avmdx de ordo me DJzoot±ozL du P=oet automom m an~ 4'in OIs oti.. i kstztiv nat le ble Wicluo'.

E ofeft, los Bsspa abl a pzo3st s oant qqu coftt picinl

L'omt pX de tzop *11 ois pint Id £d z Ios e1*tn.

3',/ =f, 1 MzoDtIo d* fzt4et a iauiati qu 1 =qgwk _am

lIs obsuvt±ms dI ar o a.±en do idu, di , BMW _.us

as 3da quL ant dvQA d" tn mm l m- t'aims & udimllam =-iso alts

de PamWm at de NaJ4,no prn u intent emadW & 36 WUJms. de IWA.

l expat que tcntos at obomutims ament pule an cmm.Shd

th1n, 4. vms puls d'aio, XiNOSLSO, 1'.1.s.stm M umts di&tiw

nstra

ftfljaj. - AHo-

M1n1istre Istirimaire.