document of the world bank · 2016. 7. 14. · date achieved 05/31/2009 1/15/2013 12/31/2013...

Document of The World Bank

Report No: ICR00003509

IMPLEMENTATION COMPLETION AND RESULTS REPORT (TF-92364)

ON A

GRANT IN THE AMOUNT OF US$40 MILLION

TO THE

REPUBLIC OF GUINEA

FOR AN

EDUCATION FOR ALL-FAST TRACK INITIATIVE PROJECT

(FC-PSE)

September 30, 2015

AFRICA Education Global Practice

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CURRENCY EQUIVALENTS

(Exchange Rate Effective September 29, 2015)

Currency Unit =GNF (Guinean Franc) 1.00 = US$ .0001378

US$ 1.00 = 7257.45 GNF

FISCAL YEAR

ABBREVIATIONS AND ACRONYMS

AFD AfDB

French Development Agency (Agence Française de Développement) African Development Bank

APL Adaptable Program LendingCAS Country Assistance Strategy CN/PSE DP

National Coordination of the ESP (Coordination Nationale du PSE) Development Partner

DRE Délégation Régionale de l’Education DSEE Pedagogic Delegate for Primary Education (Délégation Scolaire de

l´Enseigement Elementaire) ECE EFA-FTI

Early Childhood Education Education for All-Fast Track Initiative

EMIS Education Management Information System ENI Teacher Training College (Ecole Normale des Instituteurs) ERRTF ESA

Ebola Recovery and Reconstruction Trust Fund Annual Statistical Survey (Enquete Statistique Annuel)

ESIA Environmental and Social Impact Assessment ESP Education Sector Plan (Programme sectoriel de l’éducation – PSE) EVD FC-PSE

Ebola Virus Disease Pooled Fund (Fonds communautaire – Plan Sectoriel de l’éducation)

FM Financial Management GDP Gross Domestic Product GER Gross Enrollment rate GIZ German Agency for International Development (Gesellschaft fur

International Zusammernarbeit) formerly GTZ GPE Global Partnership for Education HR Human Resources ICR Implementation Completion and Results Report IDA International Development Association IRE Inspecteur régionale de l’éducation (Regional Education Inspectorate) ISR Implementation Status Report KfW Kreditanstalt für Wiederaufbau

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KPI Key Performance Indicator M&E Monitoring and Evaluation MEPU-EC Ministry of Pre-University Education and Civic Education (Ministère

de l’Enseignement Pré-Universitaire et de l’Education Civique) MOF Ministry of Finance MS Moderately Satisfactory MTEF Medium-Term Expenditure Framework MTR Mid-Term Review MU Moderately Unsatisfactory N/A Not Applicable NGO Non-Governmental Organization PAAB PACV

Annual budgetized action plans (Plans annuels d’activités budgétisés) Programme d’Appui aux Communautés Villageoises

PAD Project Appraisal Document PAREEG Program of Support to Primary School Improvement in Guinea (Projet

d’Appui à la Rénovation Educative des Ecoles de Guinée) PCR Primary Completion Rate PCU Project Coordination Unit PDO Project Development Objective PEPT Education for All Program (Programme education pour tous) PRSP Poverty Reduction Strategy Paper QER QSA

Quality Enhancement Review Quality of Supervision Assessment

RF Results Framework SSA Sub-Saharan Africa TA Technical Assistance TTL Task Team Leader TVET Technical and Vocational Education and Training UNICEF United Nations Children’s Education Fund USAID United States Agency for International Development

Regional Vice President: Makhtar Diop

Senior Global Practice Director: Claudia Maria Costin

Practice Manager: Peter Nicolas Materu

Project Team Leader: Nathalie Lahire

ICR Team Leader: Shobhana Sosale

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REPUBLIC OF GUINEA EDUCATION FOR ALL-FAST TRACK INITIATIVE PROJECT (FC-PSE)

CONTENTS

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

1. Project Context, Development Objectives and Design ........................................................... 12. Key Factors Affecting Implementation and Outcomes ......................................................... 103. Assessment of Outcomes ...................................................................................................... 194. Assessment of Risk to Development Outcome ..................................................................... 295. Assessment of Bank and Borrower Performance .................................................................. 296. Lessons Learned .................................................................................................................... 317. Comments on Issues Raised by Borrower/Implementing Agencies/Partners ....................... 32Annex 1. Project Costs and Financing ...................................................................................... 33Annex 2. Outputs by Component .............................................................................................. 34Annex 3. Economic and Financial Analysis ............................................................................. 45Annex 4. Bank Lending and Implementation Support/Supervision Processes ......................... 51Annex 5. Beneficiary Survey Results ....................................................................................... 52Annex 6. Stakeholder Workshop Report and Results ............................................................... 53Annex 7. Summary of Borrower's ICR and/or Comments on Draft ICR ................................. 54Annex 8. Comments of Cofinanciers and Other Partners/Stakeholders ................................... 71Annex 9. List of Supporting Documents .................................................................................. 72Annex 10. Project Indicators ..................................................................................................... 73

MAP

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A. Basic Information

Country: Guinea Project Name: Education For All-Fast Track Initiative Program

Project ID: P111470 L/C/TF Number(s): TF-92364

ICR Date: 09/30/2015 ICR Type: Core ICR

Lending Instrument: SIL Grantee: REPUBLIC OF GUINEA

Original Total Commitment:

USD 117.80M Disbursed Amount: USD 40.00M

Revised Amount: USD 40.00M

Environmental Category: B

Implementing Agencies: Ministry of Pre-University Education and Civic Education Cofinanciers and Other External Partners: Global Partnership for Education (GPE) Kreditanstalt für Wiederaufbau (KfW) Agence Française de Développement (AFD) B. Key Dates

Process Date Process Original Date Revised / Actual

Date(s)

Concept Review: 04/15/2008 Effectiveness: 08/15/2008 9/22/2011

Appraisal: 04/25/2008 Restructuring(s):

08/25/2011

12/11/2012

12/26//2013

Approval: 07/30/2008 Mid-term Review: 10/18/2012 11/15/2012

Closing: 08/31/2011 12/31/2014 C. Ratings Summary C.1 Performance Rating by ICR

Outcomes: Moderately Satisfactory

Risk to Development Outcome: Moderate

Bank Performance: Moderately Satisfactory

Grantee Performance: Moderately Satisfactory

C.2 Detailed Ratings of Bank and Borrower Performance (by ICR) Bank Ratings Borrower Ratings

Quality at Entry: Moderately Unsatisfactory

Government: Moderately Satisfactory

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Quality of Supervision: Satisfactory Implementing Agency/Agencies:

Moderately Satisfactory

Overall Bank Performance:

Moderately SatisfactoryOverall Borrower Performance:


C.3 Quality at Entry and Implementation Performance Indicators

Implementation Performance

Indicators QAG Assessments

(if any) Rating

Potential Problem Project at any time (Yes/No):

Yes Quality at Entry (QEA):

None

Problem Project at any time (Yes/No):

Yes Quality of Supervision (QSA):

None

DO rating before Closing/Inactive status:


D. Sector and Theme Codes

Original Actual

Sector Code (as % of total Bank financing)

Adult literacy/non-formal education 6 0

Primary education 38 75

Public administration- Education 18 10

Secondary education 26 5

Vocational training 12 10

Theme Code (as % of total Bank financing)

Education for all 100 100 E. Bank Staff

Positions At ICR At Approval

Vice President: Makhtar Diop Obiageli Katryn Ezekwesili

Country Director: Ousmane Diagana Ishac Diwan

Practice Manager/Manager:

Peter Nicolas Materu Eva Jarawan

Project Team Leader: Nathalie Lahire Michael Drabble

ICR Team Leader: Shobhana Sosale

ICR Primary Author: Shobhana Sosale

ICR Secondary Authors: Laura McDonald Bernardo da Cruz Vasconcellos

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F. Results Framework Analysis Project Development Objectives (from Project Appraisal Document) The objective of the FC-PSE is to contribute to enhancing equitable access to and quality in education at all levels - with focus on primary education – and literacy training, while also strengthening central and de-concentrated management of the education system.1 Revised Project Development Objectives (as approved by original approving authority) The objective of the Project, which is part of the Program, is to enhance equitable access to and quality of basic education, while also strengthening decentralized management of the education system, in the Recipient's territory.2 This datasheet reports on all performance indicators included at the beginning of the Project and added under each of the Project restructurings. See Annex 10 for a detailed and comprehensive overview of indicators and targets as well as their level of achievement over the life of the Project. (a) PDO Indicator(s)

Indicator Baseline Value

Original Target Values (from

approval documents)

Formally Revised

Target Values

Actual Value Achieved at

Completion or Target Years

Indicator 1: Access rate in first grade (girls) Value quantitative or Qualitative)

77% (TBD)

88% (TBD)

84% (40%)

86.1% (81.2%)

Date achieved 05/31/2007 8/31/2011 12/31/2013 12/31/2014 Comments (incl. % achievement)

Target exceeded. Under 2011 restructuring changed to intermediate-level.

Indicator 2: Gross enrollment rate (girls) in 9 targeted prefectures Value quantitative or Qualitative)

47% (43%)

55% (51%)

51% (46%)

57% (53%)


Target exceeded. Original indicator was “Gross Enrollment Rate (girls)” and was revised under 2011 restructuring to include only the nine targeted prefectures.

Indicator 3: Direct Project Beneficiaries (% female) Value quantitative or Qualitative)

0 1,584,282 (48%) 1,819,763

(48%) 1,870,408 (48%)

Date achieved 7/22/2008 1/15/2013 12/26/2013 12/31/2014

1 According to the Grant Agreement, “The Project is part of the Recipient’s Program, which contributes to enhancing equitable access to and quality in education at all levels, with focus on primary education and literacy training, while also strengthening central and deconcentrated management of the education system. 2 Grant Agreement (reinstated). September 22, 2011.

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Comments (incl. % achievement)

Target exceeded. A breakdown of beneficiaries by type can be found in Annex 10.

Indicator 4: Girls’ success rate at the examination for entrance to 7th grade in 100 targeted schools

Value quantitative or Qualitative)

49% 63% 55% 71.33%


Target exceeded. Original indicator was modified under 2011 restructuring from“Transition rate to lower secondary”.

Indicator 5: Students with a passing grade in French (grade 3) Value quantitative or Qualitative)

14.25 Not specified 15.5 15.36

Date achieved 6/30/2012 1/31/2013 12/31/2014 12/31/2014


Target not achieved in full though significant progress was made under the Project. Original indicator was “Percent of students with a passing grade in French and Math (grade 4)” and was replaced in 2013 restructuring to allow for comparability over time.

Indicator 6: Implementation of Annual Budgeted Action Plans (PAAB) at all decentralized levels.

Value quantitative or Qualitative)

0% 90% 95% 100%


Target exceeded. Indicator added under 2011 restructuring.

Indicator 7: Ratio girls: boys in primary Value quantitative or Qualitative)

0.83 0.92 Dropped Dropped

Date achieved 05/31/2007 8/31/2011 Comments (incl. % achievement)

Indicator dropped under 2011 restructuring. Emphasis was given to lagging regions and, therefore, replaced by Gross enrollment rate (girls) in 9 targeted prefectures.

Indicator 8: Primary Completion Rate (girls) Value quantitative or Qualitative)

59% (TBD) 71% (TBD) Dropped Dropped


Indicator dropped under 2011 restructuring. Could not expect an impact given the short implementation period of 3 years.

Indicator 9: Primary Repetition Rate Value 9% 9% Dropped Dropped

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quantitative or Qualitative) Date achieved 05/31/2007 8/31/2011 Comments (incl. % achievement)

Indicator dropped under 2011 restructuring. Policy was to prohibit repetition in between school cycles thus artificially lowering the repetition rate. This would not, therefore, necessarily reflect an improvement in quality.

Indicator 10: Portion of recurrent state expenditures for education Value quantitative or Qualitative)

13.7% 18.1% Dropped Dropped


Indicator dropped under 2011 restructuring as this outcome went beyond the Project’s objectives, i.e., the project could not influence this outcome.

Indicator 11: Portion of education expenditures for primary Value quantitative or Qualitative)

33% 42% Dropped Dropped


Indicator dropped under 2011 restructuring as this outcome went beyond the Project’s objectives, i.e., the project could not influence this outcome.

*Baseline values for PDO-level indicators in PAD from 2007; Baseline values in 2011 restructuring paper from 2009.

(b) Intermediate Outcome Indicator(s)

Formally Revised

Target Values

Actual Value Achieved at

Completion or Target Years

Indicator 1: Number of additional classrooms built or rehabilitated at the primary level resulting from project intervention

Value (quantitative or Qualitative)

0 1,900 1,660 1,698

Date achieved 05/31/2009 1/15/2013 12/31/2013 12/31/2014


Indicator exceeded. This Bank core indicator added under 2011 restructuring replaced two indicators from the original design, “number of new primary classrooms constructed and furnished” and “number of new primary classrooms rehabilitated”.

Indicator 2: System for Learning assessment at the Primary Level Value (quantitative or Qualitative)

No Yes Yes (2) Yes (1)

Date achieved 05/31/2009 1/15/2013 12/31/2013 12/31/2014

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Indicator partially achieved with system established, however, with a lower utility score than the target. This sector core indicator added under the 2011 restructuring replaced the indicator “National student evaluations take place”.

Indicator 3: Schools implementing reading assessment Value (quantitative or Qualitative)

0 500 60 79


Target exceeded. Indicators was added under 2011 restructuring. Further specified to focus on early grade reading and reformulated as a pilot to build the evidence first.

Indicator 4: Textbooks purchased and distributed Value (quantitative or Qualitative)

0 1,500,000 6,726,933 7,162,393


Target exceeded. Indicators was added under 2011 restructuring.

Indicator 5: Allocation of textbooks by number of students Value (quantitative or Qualitative)

54 80 70 77


Target exceeded. Indicator was added under 2011 restructuring and replaced indicators on ratio of textbooks per student in grades 1-4, grades 5-6 and upper secondary.

Indicator 6: Percent of teachers benefitting from training have improved their results compared to baseline


NA 90 65 80

Date achieved 05/31/2009 1/15/2013 12/31/2013 12/31/2014


Target exceeded. Indicator added under 2011 restructuring and replaced indicator “number of primary teachers benefitting from in-service training”.

Indicator 7: Yearly education statistics data availability before the start of the subsequent school year


No Yes Yes

Date achieved 05/31/2009 1/15/2013 12/31/2014 Comments (incl. % achievement)

Target achieved. Indicator added under 2011 restructuring and replaced “Ministry’s annual statistical report published”.

Indicator 8: Teacher management as defined by allocation of teachers by number of students (Conakry only)

Value 70 75 80 76.7

x

(quantitative or Qualitative) Date achieved 05/31/2009 1/15/2013 12/31/2013 12/31/2014 Comments (incl. % achievement)

Target not achieved in full but progress made under the Project.

Indicator 9: Number of new preschool classrooms constructed and furnished Value (quantitative or Qualitative)

0 140 Dropped Dropped


Indicator dropped under 2011 restructuring as the Pooled Fund no longer supported activities at the pre-school level. Support to pre-school was provided by UNICEF (GPE Portion).

Indicator 10: Number of new additional secondary (colleges) classrooms built/constructed and furnished


0 629 72 Dropped

Date achieved 07/22/2008 8/31/2011 12/31/2013 Comments (incl. % achievement)

Indicator dropped under 2013 restructuring as their construction would no longer be supported under the Project.

Indicator 11: Number of adults benefitting from 9-months of NGO literacy training (non-formal


0 100,000 Dropped Dropped


Indicator dropped under 2011 restructuring as this activity would no longer be supported given the reduced financing available for the Project. Support to literacy training was taken over by UNICEF (GPE Portion).

Indicator 12: Number of students with special needs enrolled in primary schools that benefitted from specific special needs support (training materials)




Indicator dropped under 2011 restructuring as these activities would be supported under a PHRD-funded Project prepared and supervised by the same World Bank team.

Indicator 13: Number of professional integration centers built Value (quantitative or Qualitative)


Date achieved 07/22/2008 8/31/2011 Comments (incl. %

Indicator dropped under 2011 restructuring as this activity would no longer be supported given the reduced financing available for the Project.

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achievement)

Indicator 14: Number of primary and secondary leavers enrolled in new professional integration courses




Indicator dropped under 2011 restructuring as this activity would no longer be supported given the reduced financing available for the Project.

Indicator 15: Number of new pre-school teachers trained Value (quantitative or Qualitative)




Indicator 16: Number of preschool classrooms receiving learning materials and supplies Value (quantitative or Qualitative)




Indicator 17: Number of primary teacher educators trained in ENI (8 modules) Value (quantitative or Qualitative)



Indicator dropped under 2011 restructuring. With the reduction in financing, the emphasis was on provision of TA to reform the curriculum and programs.

Indicator 18: Number of teachers benefiting from pre-service training Value (quantitative or Qualitative)



Indicator dropped under 2011 restructuring since this activity was supported by the IDA-funded EFA Project

Indicator 19: Number of prefectural in-service primary teacher training plans developed Value (quantitative or Qualitative)


Date achieved 07/22/2008 12/31/2008

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Indicator dropped under 2011 restructuring. The in-service training program took place at the national level and not prefecture level given the scale of the issue.

Indicator 20: Number of school improvement plans developed Value (quantitative or Qualitative)


Date achieved 07/22/2008 8/31/2011


Indicator dropped under 2011 restructuring. School grants were financed based on these plans. The indicator was deemed too simple and emphasis was given on the school grants which was a higher level outcome. An evaluation of school grants was completed.

Indicator 21: Number of secondary teachers benefiting from pre-service training Value (quantitative or Qualitative)



Indicator dropped under 2011 restructuring. With the reduction in financing, this activity was dropped.

Indicator 22: Number of secondary teachers benefiting from in-service training Value (quantitative or Qualitative)



Indicator dropped under 2011 restructuring. With the reduction in financing, this activity was dropped. In 2013, an additional 1,000 secondary teachers did, however, receive some training.

Indicator 23: Number of primary school director benefiting from in-service training Value quantitative or Qualitative)



Indicator dropped under 2011 restructuring. Activity dropped with the reduction in financing and emphasis placed on teacher training.

Indicator 24: Number of DSEE running teacher training programs (with grants) Value quantitative or Qualitative)



Indicator dropped under 2011 restructuring. Activity dropped with the reduction in financing and emphasis placed on teacher training and on provision of school grants.

Indicator 25: Number of DPE and IRE rehabilitated Value quantitative or Qualitative)

0 1 IRE, 6 DPE Dropped Dropped

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Indicator dropped under 2011 restructuring. Activity dropped with the reduction in financing and emphasis given to school construction.

Indicator 26: Internal audit of DPE and IRE carried out Value quantitative or Qualitative)

1 5 Dropped Dropped


Indicator dropped under 2011 restructuring. Captured under the school grant evaluation.

Indicator 27: Human Resources department restructured Value quantitative or Qualitative)

No Yes Dropped Dropped


Indicator dropped under 2011 restructuring as this was supported under the IDA-funded EFA project.

Indicator 28: Education Sector Plan (ESP) capacity building plan implemented Value quantitative or Qualitative)

0 1 Dropped Dropped


Indicator dropped under 2011 restructuring. 1 indicating that the plan is being implemented. Capacity building took place but not at the scale of the originally planned project.

*Baseline values for PDO-level indicators in PAD from 2007; Baseline values in 2011 restructuring paper from 2009.

G. Ratings of Project Performance in ISRs

No. Date ISR Archived

DO IP Actual Disbursements

(USD millions) 1 12/19/2008 Satisfactory Moderately Satisfactory 0.00 2 06/12/2009 Moderately Unsatisfactory Moderately Unsatisfactory 0.00 3 12/08/2009 Moderately Unsatisfactory Moderately Unsatisfactory 0.00 4 06/08/2010 Moderately Unsatisfactory Moderately Unsatisfactory 0.00 5 03/26/2011 Moderately Unsatisfactory Moderately Unsatisfactory 0.00 6 11/20/2011 Moderately Satisfactory Moderately Satisfactory 0.00 7 06/16/2012 Moderately Satisfactory Moderately Satisfactory 17.05 8 12/23/2012 Moderately Satisfactory Satisfactory 29.20 9 06/20/2013 Moderately Satisfactory Moderately Satisfactory 33.84

10 12/30/2013 Satisfactory Moderately Satisfactory 38.67 11 06/23/2014 Moderately Satisfactory Moderately Satisfactory 40.00 12 12/25/2014 Moderately Satisfactory Moderately Satisfactory 40.00

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H. Restructuring (if any)

Restructuring Date(s)

Country Director Approved PDO

Change

ISR Ratings at Restructuring

Amount Disbursed at

Restructuring in USD millions

Reason for Restructuring & Key Changes Made

DO IP

08/25/2011 N MU MU 0.00

EFA-FTI Grant agreement reinstated following re-engagement of the Bank with the country reduced FTI financing from US$117.8 million to US$64 million with World Bank administering US$40 million as the Supervising Entity and with UNICEF implementing entity for US$40 million as it was able to operate in the country during the period of the Bank’s disengagement. The scope of project activities was reduced and reoriented; indicators and targets revised; and the project closing date was extended from August 31, 2011 to January 15, 2013. The restructuring was approved by the RVP on August 25, 2011 and the Grant Agreement (GA) was reinstated and signed on September 22, 2011.

12/11/2012 N MS MS 25.56

This restructuring was undertaken to reflect the withdrawal of KfW from the pooled fund since legislative elections did not take place as anticipated. The scope of activities supported was reduced, indicators and targets were revised and the project closing date was extended by one year from January 15, 2013 to December 31, 2013.

12/26/2013 N MS MS 38.67

This restructured introduced a reallocation of funding from Component 1 to Component 2, to provide additional support to quality inputs, introduced revisions to the Results Framework (indicators and targets) and extended the Project closing date by one year form December 31, 2013 to December 31, 2014.

Note: Disbursements of US$40.0 million EFA-FTI Catalytic Fund (CF) only.

I. Disbursement Profile

1

1. Project Context, Development Objectives and Design

1.1 Context at Appraisal Country Context 1. Guinea, a country of 11.78 million, is located on the west coast of Africa, bordered by Guinea Bissau, Senegal, Mali, Ivory Coast, Sierra Leone and Liberia. Guinea is a constitutional republic with a presidency that governs with an appointed council of ministers. Since its independence from France in 1958, Guinea has experienced a number of autocratic regimes characterized by limited political and economic freedom. It has experienced periods of macroeconomic instability and the economy, highly dependent on mineral exports, remains highly vulnerable to external shocks. 2. When the Pooled Fund Program (or FC-PSE3) was appraised in 2008, Guinea was considered both a low-income country and a fragile state. Real gross domestic product (GDP) growth had stagnated at the low level of 2.2 percent on average over the previous five years which was, in turn, jeopardizing the social and economic improvements observed during the 1990’s when structural reforms were undertaken. Per capita income averaged US$370 and an estimated 50 percent of the population was living below the poverty line. Human development indicators were also low with Guinea ranking 156 out of 177 countries on the Human Development Index (HDI). This was, in large part, a result of consistently low level of spending on social sectors at 3.5 percent of GDP (with only one-third of this going towards investment). 3. The period prior to project appraisal was characterized by political and social unrest. Though the Government had taken important steps towards reform, the worsening social, economic and governance conditions had resulted in widespread strikes in 2006 and later in 2007, which transitioned into widespread political unrest and growing pressure for political change, improved governance and delivery of public services. After an eight-week period of strife and conflict which resulted in 100 deaths, an agreement was reached to establish a government on the basis of a national consensus. A Presidential decree in late 2007 introduced a reorganization of Government with a diminished role for the Prime Minister and a restoration of the constitutionally guarded presidential privileges. Though political unrest did flare to some degree following this period, general strikes were avoided by, among other things, the Government assuring unions of more political transparency and progress on economic conditions. Despite the establishment of the new reform-minded Government in 2007, there was a coup d’état in 2008 which suspended the country’s constitution and all political and union activity. This was coupled with fiscal instability given the loss of control over government revenue and spending which led to rising inflation and spiraling debt. Although the FC-PSE was appraised in 2008, as a result of these difficult circumstances, implementation could not begin until 2011 when the level of political stability improved.

3 This report evaluates the Pooled Fund (FC-PSE) which was funded by a number of DPs, and was in support of the Government’s ESP. The PAD refers to this support or operation as the “Education Sector Development Program” or “FC-PSE Program”. For simplicity, since the pooled fund was in support of the Government’s Program (ESP), the operation being reviewed will be referred to as the Pooled Fund (FC-PSE).

2

Sector Context 4. At the time of project appraisal, some of the key challenges facing the education sector included: (i) low access to education at early childhood education (ECE) in rural areas among the poor and particularly among girls; (ii) high dropout rates in rural areas as many schools did not offer the complete six-grade primary cycle (though multi-grade schooling had been encouraged in less densely populated areas, it had not been largely successful); (iii) low retention rates at secondary level given limited spaces and growing demand; (iv) low quality of education despite investment in this area (particularly in primary education); (v) inefficient management procedures and an administration which was highly reliant on donor funding; and (vi) limited domestic funding for the sector. 5. Although a number of development partners (DPs), including the World Bank, had been providing support to the Government since 2002 in the sector, coordination among them had been limited. At this time, it was agreed that a sector-wide approach (SWAp) to support an EFA strategy would be important in strengthening coordination among the various DPs and the activities supported. Support to the Education Sector Plan (ESP) would be provided through two modalities: (i) the International Development Association (IDA)-financed Education for All Project (under implementation since 2001); and (ii) a pooled fund (with contributions from EFA-FTI 4 , German Development Cooperation (Kreditanstalt fur Wiederaufbau – KfW) and the French Development Agency (Agence Francaise de developpement – AFD)). The IDA-Financed project would be a three-phase Adaptable Program Loan (APL) while the Pooled Fund (FC-PSE) would finance a share of the Government’s ESP activities. 6. In addition to an EFA Project supported by IDA5, there were a number of other projects supported by various DPs.6 The new approach aimed to lead to coordination and synergies of DPs’ efforts with those of the Government to ensure consistency, harmonization of activities and, in turn, sustainable improvements in access to and quality of basic education. The Pooled Fund (FC-PSE or Pooled Fund Program) supported the Government’s Education Sector Plan (ESP) for 2008-2015. The overarching objectives of the ESP were to improve the country’s education system in line with the education Millennium Development Goals (MDGs) and the EFA-FTI Indicative Framework. By supporting and strengthening the development of human capital, these efforts would be contributing to economic growth and poverty reduction. The rationale behind pooled funding was that it provided the opportunity to improve the efficiency of support for the ESP while also reducing transaction costs for the Government in line with the 2005 Paris Declaration on Aid Effectiveness. As the ESP and the Poverty Reduction Strategy Paper II (PRSP II) were developed at around the same time, there was a strong degree of alignment between them (including some of the key program and performance indicators). Project Context 7. The Pooled Fund (FC-PSE)7 was approved on July 30, 2008. Its planned effectiveness date was January 1, 2009. It was expected to close on August 31, 2011. The total amount of the Pooled Fund was US$160 million and had three contributing partners: EFA-FTI Catalytic Fund Grant (No.TF092364;

4 Later referred to as the GPE CF. 5 The IDA-financed Guinea Education for All (EFA) Project (P050046) was designed to provide financing for the first phase of the Government’s EFA Program (2001-2013). 6 There were projects financed by the African Development Bank (AfDB), Deutsche Gesellschaft für Technische Zusammenarbeit (GTZ), United Nations Children’s Fund (UNICEF), the United States Agency for International Development (USAID) that were being implemented. 7 As mentioned earlier, this was referred to as the Education Sector Development Program and the FC-PSE Program in the PAD. For clarity, this operation is referred to in this report as the Pooled Fund (FC-PSE).

3

US$117.8 million); AFD (US$15.2 million) and KfW (US$27 million). Although the Government had met conditions of effectiveness, the 2008 coup d’état prevented the FC-PSE from becoming effective.8 The Bank’s Operational Policy [OP 7.30] "Dealings with De Facto Governments" was triggered and in mid-2009, the country fell into arrears which led to the suspension of the Bank and EFA-FTI support. At the time of this suspension, a portion of funding from AFD to the Pooled Fund had been disbursed which, in turn, provided sufficient funding for the already established Project Coordination Unit (PCU) to remain intact and operational. In addition to this support, AFD funded the evaluation of teachers in preparation for in-service training and commenced construction of 99 classrooms. In addition, since UNICEF was able to maintain its presence on the ground and support activities in the sector during this period, US$24 million of the FTI financing was allocated to UNICEF. OP7.30 restriction was lifted on January 19, 2011, and the country came out of arrears on April 21, 2011. As such, the Bank was able to reengage with the country. On June 6, 2011 the waiver to World Bank OP13.00 "Signing of Legal documents and effectiveness of loans and credits" was granted. The FTI reduced the allocation for the Pooled Fund from US$117.8 million to US$64 million of which US$40 million would be managed by the Bank as SE while the remaining US$24 million was being managed by UNICEF as Implementing Entity. The decision to allocate this financing to UNICEF as IE was made given the organization’s ability to continue its activities during the period in which the Bank had formally disengaged from the country. The Project was restructured on August 25, 2011 and the Pooled Fund became effective on September 22, 2011 when the Grant Agreement (GA) was reinstated.

1.2 Original Project Development Objectives (PDO) and Key Indicators (as approved) 8. According to the Project Appraisal Document (PAD), “the objective of the FC-PSE is to contribute to enhancing equitable access to and quality in education at all levels - with focus on primary education – and literacy training, while also strengthening central and de-concentrated management of the education system.” According to the original GA, “The Project is part of the Recipient’s Program, which contributes to enhancing equitable access to and quality in education at all levels, with focus on primary education and literacy training, while also strengthening central and de-concentrated management of the education system. 9. Reflecting the strong alignment of the FC-PSE with the larger ESP, the Pooled Fund utilized several of the ESP indicators as its key performance indicators (KPIs) (or PDO-level indicators), with the intermediate-level indicators designed to measure the specific outputs of the FC-PSE Project. The adoption of indicators directly from the Government’s sector matrix was common practice at the time for FTI-funded Projects and reflects the view of the Pooled-Fund’s objectives as supportive of the Government’s overall education sector program. The PDO-level indicators are presented by objective in Table 1 below. A detailed list of intermediate-level indicators can be found in Annex 10.

8 Although the GA was countersigned on August 13, 2008, it was subsequently legally terminated as the Project did not become effective within 90 days of its signing, as was stipulated in Article V (5.03) of the GA. The revised GA, reflecting the restructured design, was reinstated in September of 2011.

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Table 1: Original PDO-level Indicators by Objective

Objective Key Performance Indicator

Improving Equitable Access

Access rate in first grade (total/girls) to increase from 77 percent/TBD9 in 2007 to 88 percent/TBD in 2010 Gross enrollment rate (GER) primary to increase from 79 percent in 2007 to 90 percent in 2010 Ratio girls: boys in primary to increase from 0.83 in 2007 to 0.92 in 2010

Completion rate in primary (total/girls) to increase from 59 percent/TBD in 2007 to 71 percent/TBD in 2010 Transition rate to lower secondary to decline from 73 percent10 in 2007 to 65 percent in 2010

Improving Quality

Percentage of students with a passing grade in French (year 4) to increase from 50 percent (2005 data) in 2007 to 55 percent in 2009 Percentage of students with a passing grade in Math (year 4) to increase from 51 percent (2005 data) in 2007 to 57 percent in 2009 Repetition rate in primary to remain stable at 9 percent from 2007 to 2010

Improving Management of the

Educational System

Portion of recurrent State expenditures for education to increase from 13.7 percent in 2007 to 18.1 percent in 2010

Portion of education expenditures for primary to increase from 33 percent in 2007 to 42 percent in 2010

1.3 Revised PDO (as approved by original approving authority) and Key Indicators, and reasons/justification 10. The PDO was revised under the 2011 restructuring to the following: “The objective of the Project, which is part of the Program, is to enhance equitable access to and quality of basic education, while also strengthening decentralized management of the education system, in the Recipient's territory.” 11 The revisions to the PDO introduced in the 2011 restructuring narrowed the scope of the original PDO by focusing specifically on supporting improved access, quality, and management within the basic education sub-sector. Though the PDO’s mention of the Recipient’s territory was omitted under the 2012 restructuring in 2012, both the objectives and intent of the Project remained unchanged.12 See Table 2 for modifications to the PDO. 11. During the project life, modifications were introduced to the FC-PSE Results Framework (RF) to PDO- and intermediate-level indicators. Under the original design the RF included 10 PDO-level indicators and 29 intermediate-level indicators. Under the first restructuring in 2011, a number of modifications were introduced to the Project’s RF. While a large number of indicators were dropped, others were revised and some new performance measures were added. Under the second restructuring in 2012, additional modifications were introduced to the Project’s RF, including most notably, adjustments to the end-of-project targets due to the withdrawal of KFW from the Pooled Fund. Under the restructuring in 2013, indicators and/or associated end-of-project targets were revised to reflect changes in the project’s scope as

9 To be determined (or TBD) was indicated in the PAD. 10 An ISR later indicated that the baseline value was 65 percent. 11 Grant Agreement (reinstated). September 22, 2011. 12 2012 Restructuring Paper. (November, 2012)

5

well as to account for the additional time which had been allotted under this restructuring. All of the changes introduced to the RF during the Project life are detailed in Annex 10 of this report. Annex 10 also documents the level of achievement for all of the PDO- and intermediate-level indicators. 1.4 Main Beneficiaries 12. The main beneficiaries of the Pooled Fund (FC-PSE) were primary school-aged children nationwide, teachers, central and de-concentrated level education administrators, illiterate adults, and the poorest prefectures and populations. The number of beneficiaries targeted by the FC-PSE was not specified in the original project documents. However, the 2011 Restructuring Paper lists the beneficiaries as those individuals benefitting from school construction, teacher training and textbooks and estimates the total number of project beneficiaries to be 1,584,282 (of which 48 percent would be female). 1.5 Original Components 13. The FC-PSE was comprised of three Components, as follows: Component 1: Improving Equitable Access to Basic and Non-Formal Education [Appraisal: US$119 million; Original FTI Financing: US$90.9 million; Revised FTI Financing13: US$23.7 million; Actual Expenditure: US$22.7 million].14 This component aimed to promote equitable and regulated access to basic and non-formal education, to increase enrollment rates in pre-school, and primary and lower secondary education, support specific measures for mentally and/or physically handicapped children, expand access to literacy training, support the creation of professional integration courses for primary and lower secondary leavers, and professional training specifically oriented toward the mining sector. Component 1 included the following five sub-components: (i) Improving pre-school, primary, and secondary level educational infrastructure; (ii) expanding educational access of primary-level students with special needs; (iii) expanding access to literacy training; (iv) establishing professional integration courses for primary and lower secondary leavers; and (v) increasing availability of skilled labor for the mining sector. Component 2: Improving Quality of Basic and Non-Formal Education [Appraisal: US$26 million; Original FTI Financing: US$20.1 million; Revised FTI Financing: US$11.8 million; Actual Expenditure: US$12.6 million.]15 The objective was to improve the quality and relevance of basic and non-formal education, with particular focus on the acquisition of pedagogical materials, provide initial and continued teacher training, provide block grants to Primary Education Delegations (Délégation Scolaire de l’Enseignement Élementaire – DSEE), the MEPU-EC administrative level below the prefecture, and student evaluations. The following six sub-components were supported under Component 2: (i) Acquiring and supplying free textbooks and teachers’ guides for public and private primary and secondary schools; (ii) supporting initial training for primary and secondary teachers; (iii) Supporting continued training for primary and secondary teachers; (iv) Providing block grants to schools and DSEE; (v) Conducting nation-wide student learning assessments at primary level (year 4—2008; year 6—2009; and year 2—2010) and lower secondary level (2009); and (vi) Implementing curriculum reform in higher education.

13 These are the values for the 2011 Restructuring Project which included revised financial figures based on the revised FTI allocation. 14 Actual expenditure for the components reflect spending under the Project supported by the EFA-FTI CF Grant. 15 Ibid.

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Component 3: Improving Management of the Educational System [Appraisal: US$9 million; Original FTI Financing: US$6.8 million; Revised FTI Financing: US$4.5 million; Actual Expenditure: US$4.7 million].16 The objective was to strengthen the central and de-concentrated management of the sector, including its infrastructure services. Component 3 was comprised of the following four sub-components: (i) Enhancing the National Service for Educational Infrastructure and Equipment (Service National des Infrastructures et Équipements Scolaires—SNIES) capacity to monitor civil works; (ii) Construction and rehabilitation of regional and prefectural administrative education offices by financing civil works on one Inspection Regionale de l’Education (IRE) and six DPE that had sustained serious physical damage during the January-February 2007 civil strife; (iii) Strengthening planning and monitoring capacity at the regional and prefectural level; and (iv) Strengthening the MEPU-EC at the central level. 14. A detailed overview of the three components can be found in Annex 2 of this report. Of the total funding for the FC-PSE under the original design, 96 percent was allocated to the three components listed above while 4 percent (about US$6 million) was unallocated. 1.6 Revised Components 15. The overarching aims of the three project components remained relatively consistent throughout the project life. However, activities to be supported under Components 1 and 2 were modified as follows. Under the first restructuring in 2011, Components 1 and 2 were modified to focus only on “basic education”.17 In terms of activities, under this restructuring, some activities were modified given the substantial reduction in FTI funding from US$117.8 million to US$40 million, a few new activities were added and one activity was dropped. Under this restructuring, the scope and number of activities to be supported under the Pooled Fund were reduced in light of the reduced financial support for the FC-PSE.18 The modifications to Components 1 and 2 were also reflected in adjustments to various indicators and targets in the RF under these restructurings. 19 In terms of Component 3 20 , the activity to support construction of administrative offices was dropped and increased emphasis was placed on strengthening human resources (HR) management. The revisions introduced within each component of the Project are detailed in Table 2 below (as described in the revisions to the GA). Under the third restructuring, the construction of lower secondary schools (planned under Component 1) was cancelled as there was insufficient time to complete this activity. Additionally, under the third restructuring, funding was reallocated to Component 2 to support the provision of school grants for in-service teacher training for an additional year and two new activities: (i) in-service teacher training was provided to 1,000 lower secondary school teachers; and (ii) 67,313 French textbooks were provided to 10th grade students.

16 Ibid. 17 The Original Program specified Component 1 as “Improving equitable access to basic and non-formal education”, whereas during the first restructuring, the revised articulation was “Improving equitable access to basic education”; and specified Component 2 as “Improving quality of basic and non-formal education”, whereas during the first restructuring, the revised articulation was “Improving quality of basic education”. 18 Funding changes included: (i) the reduction in GPE financing from US$117.8 million to US$64 million in 2011; and (ii) the withdrawal of KfW financing in 2012. 19 Refer to Section 2.3 on M&E under the Project as well as Annex 10 which provides details on all PDO- and intermediate-level indicators over the life of the Project. 20 The title of Component 3 was revised to “Strengthening the Management of the Educational System”.

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Table 2: Revisions to PDO and Components during the Project Life

Original Design First Restructuring (2011) Second Restructuring

(2012) Third Restructuring

(2013)

COMPONENT 1

Improving Equitable Access to basic and non-formal education

Improving Equitable Access to basic education

(i) Improving pre-school, primary and secondary level educational infrastructure by constructing or rehabilitating and furnishing of primary classrooms and secondary classrooms, as well as classroom pre-schools in targeted areas.

(i) Improving primary and secondary level educational infrastructure by constructing or rehabilitating and furnishing primary classrooms and secondary classrooms in targeted areas.

unchanged

(i) Improving primary educational infrastructure by constructing or rehabilitating and furnishing primary classrooms in targeted areas

(ii) Expanding educational access of primary-level students with special needs by providing additional training for teachers, provision of special education materials and minor civil works.

(ii) Expanding educational access of primary-level students with special needs by providing additional training for teachers and provision of special education materials

unchanged unchanged

(iii) Expanding access to literacy training by financing literacy courses, providing professional development for literacy trainers and supervisors responsible for monitoring and evaluation, and supporting the National Literacy Secretariat.

Dropped

(iv) Establishing professional integration courses for primary and lower secondary leavers by constructing and equipping professional integration centers throughout the country, preparing teaching materials, and training teachers

(iii) (a) Developing strategies and establishing partnerships with the private sector as well as identifying sectors of growth through the provision of technical assistance (including the carrying out of surveys and studies); and (b) constructing, rehabilitating and furnishing professional integration centers at selected sites.

unchanged unchanged

(v) Increasing availability of skilled labor for the mining sector by creating short-term professional training courses.

Dropped

8



(2013)

—

(iv) Promoting school demand through (a) providing private courses to girls to keep them in school; (b) provision of school kits to children in the targeted poorest prefectures; (c) carrying-out social mobilization in selected sub-prefectures through sensitization campaigns; and (d) provision of teaching aids to, and training of, targeted teachers in multigrade classrooms.

unchanged unchanged

COMPONENT 2

Improving Quality of Basic and Non Formal Education

Improving Quality of Basic Education

(i) Provision of textbooks for public and private primary and secondary schools as well as basic learning supplies for pre-schools

(i) Provision of textbooks for public primary and secondary schools as well as carrying out a technical and financial audit on such provision

(i) Provision of textbooks for public primary schools

(i) Provision of textbooks for public primary and secondary schools

(ii) Construction of 8 teacher colleges (Ecole Normale d’Instituteurs) and provision of subsidies to said colleges and financial incentives to teachers

(ii) (a) Rehabilitating selected teacher colleges; (b) strengthening teacher training curriculum through technical assistance; (c) assisting with the development of Performance Contracts with the Teacher Training Institutes; and (d) supporting teacher training pursuant to Performance Contracts.

(ii) Strengthening teacher training curriculum through technical assistance.

unchanged

(iii) Supporting continued training for primary and secondary teachers, and school directors at the regional and local levels

(iii) Supporting in-service training for primary and secondary teachers, and primary school directors

(iii) Supporting in-service training for primary and primary school directors

(iii) Supporting in-service training for primary and lower secondary teachers and primary school and lower secondary directors

(iv) Provision of Block Grants to schools and DSEE

(iv) Provision of Block Grants to primary schools and DSEE in support of their school improvement projects.

unchanged unchanged

(v) Conducting nation-wide student learning assessments

unchanged unchanged unchanged

(vi) Implementing curriculum reform in higher education

(vi) Supporting reform in higher education and carrying-out studies on higher education

unchanged unchanged

9



(2013)

—

(vii) Supporting the piloting of early literacy assessment, including a study tour, training of teachers in the use of assessment instruments, production of teaching materials, interactive radio programs, the development of training modules, and the training of trainers

(vii) Supporting the piloting of early literacy assessment, including a study tour, training of teachers in the use of assessment instruments, production of teaching materials, interactive radio programs and monitoring-evaluation by the DSEE

unchanged

—

(viii) Supporting the reform of the Recipient’s Higher Institute of Education including through the review of programs, the development of training modules, and the training of trainers.

Dropped

— (ix) Supporting newly certified teachers through Provisional Stipends.

Dropped

COMPONENT 3

Improving Management of the Educational System

Strengthening Management of the Education Sector

— —

(i) Enhancing the capacity of the National Service for Educational Infrastructure and Equipment (SNIES) to monitor civil works through technical advisory services, equipment and training

(i) Strengthening the CN-PSE’s capacity at the central and deconcentrated levels to monitor civil works through technical advisory services, equipment and training

unchanged unchanged

(ii) Construction and rehabilitation of regional and prefectural administrative education office

Dropped

(iii) Strengthening planning and monitoring capacity at the regional prefectural level

(ii) Strengthening the MEPU-EC’s planning and monitoring capacity at the central, regional and prefectural levels

unchanged unchanged

—

(iii) Strengthening the MEPU-EC’s human resources management through the provision of computer software and technical assistance for the improvement of human resource procedures

unchanged unchanged

(iv) Strengthening the MEPU-EC by providing training for management and coordination of the Program, equipment, development of intranet, and operating costs

(iv) Strengthening the overall management and coordination capacity of the MEPU-EC by providing, inter alia, training, equipment and internet

unchanged unchanged

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1.7 Other significant changes 16. The amount of the original grant was US$117.8 million with the World Bank acting as Supervising Entity (SE).21 In 2011, when the Grant was reinstated, the FTI Board requested that the funding amount allocated to Guinea be reduced. Together, the DPs and Government agreed to reduce the funding for the Pooled Fund to US$64 million with the World Bank serving as SE for US$40 million with the remaining US$24 million being administered by UNICEF as Implementing Entity (IE). This shared responsibility between the Bank and UNICEF had been agreed and suggested by the DPs and the Government. It was the first time that an FTI grant had followed such an arrangement. 17. During the Project life, the Project was restructured three times as follows: 18. First restructuring: The level 1 restructuring was approved on August 25, 2011 in response to the FTI Board request to reduce the FTI amount from US$117.8 million to US$64 million, with the World Bank managing US$40 million as the SE and UNICEF responsible for US$24 million as the IE. The project scope of activities was narrowed and reoriented as evidenced in changes to the PDO and the RF. The amended GA was reinstated on September 22, 2011. The project closing date was extended from August 31, 2011 to January 15, 2013 was stipulated by FTI. 19. Second restructuring: On May 15, 2012, a second restructuring was undertaken in response to the decision of KfW to withdraw from the Pooled Fund.22 In addition to narrowing the scope of project activities, the restructuring extended the closing date by approximately one year from January 15, 2013 to December 31, 2013. This restructuring provided additional time to ensure completion of project activities and achievement of the PDO by project closing. 20. Third restructuring: The last restructuring of the project was approved on November 12, 2013 in response to a Government request. Under this restructuring, (i) funding was reallocated from the construction of middle schools (which could not be completed by the project closing date) to in-service teacher training, provision of learning materials for early grades and textbooks benefiting secondary schools, and continued TA; (ii) the closing date was extended again by one year from December 31, 2013 to December 31, 2014 to provide additional time for completion of project activities and further progress towards achievement of the PDO; and (iii) the RF was modified to reflect changes in the scope of the project and the additional allotted time.

2. Key Factors Affecting Implementation and Outcomes

2.1 Project Preparation, Design and Quality at Entry Project Preparation and Design 21. The Pooled Fund’s objectives were directly aligned with the Government’s objectives for the sector and with the aims of the PRSP II, the Letter of Sector Policy and the Government’s National Development

21 The total amount of the Grant from the FTI was based on the financing gap in the sector. 22 KfW’s decision to withdraw was based on the fact that legislative elections in the country did not take place as anticipated.

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Strategy which was developed at around the same time.23 The project’s original design was also informed by a number of analytical studies including a recently completed education Country Status Report (CSR)24 (2005 - 2006) and a medium-term expenditure framework (MTEF). Moreover, the design of the Pooled Fund also drew on lessons learned from other investments adopting a SWAp in other relevant settings (e.g., Zambia, Kenya and Bangladesh) and other operations in Guinea, including the ongoing IDA-funded operation. The decision to use a SWAp was guided by the implementation of the IDA-funded EFA Project (P050046) and a strong commitment among DPs to uphold the principles of the 2005 Paris Declaration. Since it was designed in the framework of the ESP, the operation’s development benefitted from wide consultations with various stakeholders across all levels of the education system. Further, it capitalized on the FTI Board’s growing support of the new and ambitious pooled fund approach to support the Government’s ESP. The Bank was able to use its experience in project design in and implementation in the Guinean context as the Bank had been very active in the sector since 2002. A select number of activities to be supported under the FC-PSE had been piloted and, in many cases, implemented during the previous Government-supported Education Sector Program which had been prepared in 2001 for the period spanning from 2002 to 2006. 22. Despite the operation’s strong alignment with Government strategy and strong analytical underpinnings, the original design was overly complex and ambitious given the fragile political environment prevailing in Guinea at the time of project preparation. In order to better account for these challenges to project implementation, the original design needed to be modified to enhance its overall development impact. Quality of Entry 23. The Bank team possessed the necessary and relevant expertise to prepare and appraise the Pooled Fund and drew on relevant analytical work. The team was well-positioned to lead preparation of the Pooled Fund and to take on the role of SE, as it was able to build on the existing working relationship with the Government and other DPs which had been developed over the course of previous and on-going Bank-supported operations. As described above, the Pooled Fund was very well-aligned with Government objectives and aimed to address those issues which had been identified as central to the Government’s own strategic agenda. The Pooled Fund did not benefit from either a Quality at Entry Review (QER) or a Quality of Supervision Assessment (QSA). The risk related to effectively implementing a project of this size and complexity within such a fragile context was, however, somewhat underestimated. Although the Pooled Fund was designed to provide a much larger amount of financing to an array of activities, the Bank and Government assumed that the sector had sufficient absorptive capacity. However, it is important to highlight that the initial amount to be provided was determined on the basis of an assessment of the financing gap of the national education sector plan in basic education (this was the funding criteria under the FTI initiative at the time).

23 The Government had begun to carry out fundamental reforms in April 2007 to restore good governance, stabilize the economy, and promote sustainable growth, employment and poverty reduction based on a short economic rehabilitation emergency program (July 2007) and a second generation Poverty Reduction Strategy Paper (PRSP II), which was completed in August 2007. The PRSP II had aimed to capture the ground lost over the previous five years, so that the MDGs could be reached. The PRSP II had three pillars: (i) improving governance (ii) accelerating growth and increasing employment opportunities; and (iii) improving access to basic services. 24 This analysis provided some evidence that although government financing allocated to the education sector had been limited, access to education had improved in the 15 years prior to this due to private provision of education and improved internal efficiency of the sector. At the same time, despite investments targeting quality improvements in education little improvement had been observed and some management methods had been slow to take root without support from the donor community. In addition, regional and gender disparities were of concern as was the lack of regular and rigorous student learning assessments.

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24. Specifically, the FC-PSE design presented a number of specific challenges to Government capacity including, most notably: (i) a high level of multi-ministerial coordination in an environment where ministries had little history of cross-collaboration; (ii) increased sharing of responsibilities in terms of implementation across many actors and levels (for example, Government institutions, NGOs, schools); and (iii) a high degree of coordination with DPs. Many of these also posed challenges to the ongoing IDA-funded Project. Further, a significant amount of time was needed in order to prepare for implementation of activities. Although the FC-PSE was innovative by scaling up pilots and testing new strategies, often simultaneously, this placed additional pressure on an already limited institutional capacity, particularly in the areas of planning and M&E. At the same time, key aspects of project design (including the reliance on three different methods for school construction activities (NGO, community-based support and small and medium enterprises) were highly appropriate for the context. Based on the information above Quality at Entry is rated Moderately Unsatisfactory. Revised Design 25. The 2011 Restructuring introduced significant changes to the Project design including: (i) sharpening the focus of the PDO; (ii) support to select activities to buttress achievement of the revised PDO and with consideration for existing capacity and comparative advantage among DPs (particularly the case in terms of the redistribution of civil works among DPs); (iii) increased focus on human resources management; and (iv) modifications to the RF to better capture project-related results and outcomes. The revised design was less complex and more narrowly focused on providing support to basic education. A number of activities were cancelled and/or scaled down, including for example the provision of textbooks for senior secondary schools. The 2012 Restructuring, was necessitated by KfW’s decision to withdraw its resources (the total contribution to the Pooled Fund was US$27 million) from the Pooled Fund. Though the 2012 Restructuring did not change the overarching objectives and intent of the operation, it did narrow its scope (i.e., reducing the number of primary schools to be constructed under the project) in order to account for the reduction in available funding. Under the 2013 restructuring, funding was reallocated from the construction of secondary schools to the provision of quality inputs (textbooks and teacher training) as it was unlikely that the secondary schools could be completed even within the extended project period. This activity was taken on by other DPs. The various extensions of the closing date, provided the necessary time for the Government to achieve its goals of expanding access, addressing equity, improving quality and strengthening management capacity in the sector. 2.2 Implementation 26. The implementation arrangements were complex25, relying on a number of different levels and entities for managing different aspects of the Pooled Fund and the implementation of the larger ESP. The National Coordination of the ESP (CN/PSE), as responsible for operational coordination of the ESP, was the primary management center for the majority of the Pooled Fund resources, including financial

25 Detailed Program implementation arrangements were specified in 13 documents including the: (i) PSE Execution Manual; (ii) FC-PSE Administrative, Financial, and Accounting Manual; (iii) Guidelines for the Management of Grants to Schools and DSEE; (iv) Guidelines for textbooks; (v) Operations Manual for Functional Literacy and NAFA Centers; (vi) Operations Manual for School Construction by Contract Management Delegated to NGOs; (vii) Operations Manual for School Construction by Community Delegation; (viii) Operations Manual for Research and Innovation Funds; (ix) PSE Monitoring and Evaluation Guide; (x) Manual for the Development of Prefectural Education Development Plans; (xi) Manual for Continued Training of Primary-School Teachers; (xii) Manual for Continued Training for Secondary-School Teachers; and (xiii) the various execution manuals of sectoral investment projects that were underway and contributed to the ESP.

13

management (FM) and procurement. As the central operational coordination unit for the IDA-financed project, the CN/PSE and the Bank had already developed a solid working relationship with this unit. The Strategic National Committee (SNC), led by the Secretary General of the MEPU-EC, coordinated discussions around budget, announced annual budgetized action plans (Plans annuels d’activités budgétisés –PAAB) adoption and supervised preparation of key documents for sector reviews as well as audit, M&E and progress reports. In addition, it coordinated capacity-building and institutional reform activities supported under the Project. The National Education Steering Committee, led by the Minister of MEPU-EC and with wide representation from a variety of stakeholders, was responsible for ensuring continued strategic alignment of the Pooled Fund, as well as any other parallel DP-supported activities within the education sector. Finally, regional and prefecture steering committees were responsible for ensuring consistency between local plans and the ESP and for leading policy dialogue at the deconcentrated levels. 27. Implementation can be described in four distinct phases. Overview of implementation by phase 28. Phase I: July 2008 – August 24, 2011. Though the Pooled Fund was approved in 2008, it did not become effective until 2011 as a result of the coup d’état and the non-payment of arrears which required the Bank to formally disengage from the country. During this period, however, funding from the AFD within the pooled fund allowed the previously established PCU to remain operational.26 Further, though the Bank had formally disengaged with the country, the Bank team maintained dialogue with the project and technical teams during this period through videoconferences (VCs) and missions (in Dakar). The implementation status reports (ISRs) completed during this period pointed to a deterioration in key sector indicators including repetition and primary completion rates, although limited data were provided on the level of achievements observed across the various PDO- or intermediate-level indicators. Following the presidential elections in January 2011, the previously tenuous macroeconomic, political and social context improved considerably and a joint review mission was undertaken in the Spring (May/June) of 2011. With the clearance of arrears in April 2011, the Bank was able to re-engage in the country. The lack of implementation during the two-year period due to the country context led to the decision by the FTI Secretariat to reduce financing from the FTI Catalytic Fund to the Pooled Fund from US$117.8 to US$64 million. As UNICEF had a strong presence on the ground and had been able to continue its activities during this period when the Bank was not allowed to formally engage in the country, it took on the role of IE for US$24 million while the Bank would be SE for the remaining US$40 million. The Bank worked closely with other partners to recalibrate the scope of activities to be supported by the FC-PSE to make it commensurate with reduced funding and agreed on a realistic implementation timeframe. As the PCU had remained functional, once the Bank was allowed to officially reengage with the Government, changes introduced under the first restructuring on August 25, 2011 were carried out in a timely manner. Indeed, this operation was one of the first to be reactivated after this period of disengagement which was largely possible given the efforts to maintain continued dialogue described above. Although no disbursements were made during this period from the FTI portion of the funding managed by the Bank, the AFD had disbursed during this period. 29. Phase 2: August 25, 2011 - December 10, 2012. This first restructuring introduced important modifications to the Project as described earlier. As a result of the significant reduction in funding, the PDO, RF and project timeframe were revised. In December 2011, the first supervision mission following project effectiveness was held which revealed project implementation was progressing well in the initial

26 In addition, AFD funded the evaluation of teachers in preparation for in-service teacher training and the launch of the construction of 99 classrooms. AFD funding during this period totaled US$2.3 million.

14

phases in spite of the difficult context and the changes in senior management within the MEPU-EC. The strong level of collaboration among DPs and continued supervision (by VCs on a monthly basis) played an important role in the uptake of the Project during this time. However, during this time, KfW made the decision to withdraw its funding from the Pooled Fund as the legislative elections had not taken place which was a condition for their disbursement. This decision was not based on any issues with the pooled fund arrangement, but was politically motivated (their funding was ultimately channeled and implemented through an international NGO and not directly executed by the Government as was the Pooled Fund). This led to the decision to further narrow the scope of the Project and these changes would be formally introduced under the 2012 restructuring. Significant progress across many activities – including construction, textbooks, provision of school grants, and recruitment of teacher trainees, private tutoring and technical capacity-building – was observed during this phase. Given the progress made in terms of construction (and this activity receiving the largest allocation of funding of around 70 percent), disbursement during this period reached US$25.56 (around 64 percent of the total funding amount of US$40 million). Joint sector reviews were also carried out during this time while aspects of project implementation were effectively carried out (i.e., procurement, FM, etc.) Despite the progress made, some key activities were delayed including the assessment of learning outcomes and construction was behind schedule. Furthermore, KfW decided to withdraw from the Pooled Fund as a condition for its funding had not been met (related to legislative elections). On the basis of these factors, it was agreed that the Project would again be restructured. 30. Phase 3: December 11, 2012 – December 25, 2013. The second restructuring, approved on December 11, 2012 introduced some modifications to the project scope, evidenced in the scaling back of a number of end-of-project targets, and an extension in the closing date (also reflected in a scaling up of some end-of-project targets, i.e., number of project beneficiaries). Specifically, with the withdrawal of KfW from the Pooled fund, targets for the number of primary and lower secondary classrooms were reduced. This restructuring, which required a thorough assessment of project achievements to date and critical review of key aspects of the project, replaced the mid-term review (MTR). The pace of implementation was maintained with the Project having disbursed 84 percent of total grant funding by May 2013, less than six months after the restructuring. Progress continued on key activities – including the implementation of PAABs, continuing delivery of textbooks and a rigorous monitoring system for their delivery, training of teachers, private tutoring for girls, learning assessment for fourth grade, the development of an MTEF, and continued construction of classrooms. Further, grants to schools were being managed directly, for the first time, by the DNEE and the most recent statistical data for all sub-sectors from 2012 were analyzed. Supervision of construction was strengthened to ensure improved quality of civil works and some steps were taken to improve adherence to safeguards procedures. It was agreed near the end of this year that the Project would need to be restructured in response to a Government request. Specifically, this restructuring would reallocate funding from the construction of middle schools (which would no longer be supported under the Pooled Fund), to activities designed to improve quality and it would extend the project closing date by one year. In addition to providing more time for completion of project activities, this would allow a bridge between this funding and the preparation of an upcoming GPE-funded project. By the end of this phase, US$38.67 million had been disbursed, representing 97 percent of total net grant funding. 31. Phase 4: December 26, 2013 - December 31, 2014. The last restructuring was approved on December 26, 2013 and introduced only marginal changes to the Project, as described earlier. As a result of strong implementation progress in the previous period, most of the project activities were completed, including 96 percent of the planned primary school construction with significant improvements observed in terms of quality. Given the reallocation of funding, and in order to fully complete activities planned under the Project, select activities to support improvements in quality were scaled up (including provision of additional textbooks, supporting training of lower secondary school teachers) while other activities were continued – including assessment activities (learning outcomes and a tracer study), primary school construction, private tutoring for girls, and the provision of grants to schools. On average, two joint

15

supervision missions were also carried out during this period. By the time of Project closing, most project activities had been implemented. By project closing on December 31, 2014, 100 percent of the revised (net) grant amount had been disbursed.

Table 3: Implementation Phases and Corresponding Disbursement Phase Restructuring

Date Dates Amount

Disbursed (cumul.)

Total Grant

Amount

% of net credit

(cumul.)

% during period

1 July 2008-August 24, 2011 0 117.8 0 0 2 Aug. 25, 2011 August 25, 2011-Dec. 10, 2012 25.56 40 64 64 3 Dec. 11, 2012 Dec. 11, 2012–Dec. 25, 2013 38.67 40 97 33 4 Dec. 26, 2013 Dec. 26, 2013-Dec. 31, 2014 40 40 100 3

32. Implementation was characterized by a high level of coordination among Government, development partners, and other stakeholders and supportive and intense and continued supervision was provided by the Bank, both in-country and through widely-attended VCs. The Bank’s strong engagement with the Government and other DPs was also useful in effectively undertaking semi-annual joint reviews. This high level of engagement allowed the Bank, along with the various DPs, to identify and address bottlenecks in a timely manner. Further, despite reduced funding and contribution to the Pooled Fund, coordination and policy dialogue needed to be maintained to ensure that the operation would still be capable of achieving the PDO. During implementation, the FC-PSE adopted innovative approaches from the IDA-financed project including, for example, the three method approach to school construction. Continued attention was also focused on strengthening the supervision capacity of the implementing ministry and of those entities responsible for specific activities (data collection and analysis, school construction, etc.) central to the Project’s success. 2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization 33. M&E Design. The original Program included a comprehensive RF with ten PDO- and 29 intermediate-level indicators. The ten PDO-level indicators are mapped according to each sub-objective of the project. These objectives were, in turn, logically linked to the three components of the Pooled Fund. The performance measures used to evaluate the Pooled Fund’s performance were taken directly from the ESP M&E Matrix and focused on measuring sector-wide results. The intermediate-level indicators, by contrast, focused on specific outputs and included targets which were the focus of activities supported under the FC-PSE. This approach was common at the time – in the context of sector-wide approaches which aimed to provide direct support to the Government’s own ESP. 34. At the national level, the M&E unit in the CN/PSE was responsible for M&E under the ESP and would be responsible for producing regular reports on implementation of the ESP as well as reports specifically pertaining to the FC-PSE (use of funds, implementation progress) as well as organizing annual joint sector reviews. An M&E manual had been developed during ESP preparation and the Government and DPs had agreed to set up a more sophisticated and reliable M&E system. The Government planned to establish a single database to capture all information relevant to different levels of Government and DPs (including for the FC-PSE). Data would be collected from the annual statistical survey (Enquete Statistique Annuel – ESA, which the MEPU-EC was already using) and an additional survey that was under development by the M&E unit of the CN/PSE. The latter would aim to capture data which were not collected as part of the ESA. The data for the ESA was collected by the schools themselves – and then aggregated at the DSEE, DPE, IRE and national levels (with MEPU-EC staff in the DPE, IRE and central levels heavily involved in analysis and synthesis of information collected). A table on ESP output and results indicators (tableau de bord) was maintained at all levels making it possible to track PAAB activities

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and outcomes. On this basis, annual reports were produced to show progress made under the Pooled Fund as well as the sector as whole. Finally, an inter-sectoral M&E commission was to be established that would be in charged with monitoring the implementation of the capacity-building information, validating M&E reports, and facilitating information-sharing among stakeholders. 35. Revised M&E Design. As described earlier, a number of important changes were introduced under the 2011 restructuring. Given the more narrowed focus of the Project, and growing attention at a corporate level to ensuring the inclusion of SMART indicators in operations, the RF was significantly modified and recalibrated. A number of performance measures no longer relevant to the restructured operation or which could not feasibly be impacted by FC-PSE supported interventions were omitted, a number of measures were fine-tuned and an additional number of indicators were added to the RF to ensure progress under the Project could be adequately captured. For example, under the 2011 restructuring, the indicator measuring changes in the GER, was narrowed to focus only on the GER in the nine targeted prefectures and the measure of access rate in first grade (described as gross intake rate) was moved to the intermediate-level. In 2013, the indicator to measure learning assessment was modified to allow for comparability of figures over time. At the same time, however, end-of-project targets for the unchanged indicators were not significantly modified until the second restructuring in 2012 and again in 2013 when a few activities were modified (cancellation of construction of secondary schools and increased funding was provided to support quality inputs, i.e. in-service teacher training, additional textbooks, etc.)27 Adjustments made to the RF, including baseline values and end-of-project targets as well as a brief description of the level of achievement for each of the PDO- and intermediate-level indicators is provided in Annex 10. 36. M&E Implementation. As envisaged, an organized M&E system was established under the Project. At the national level, the CN/PSE was responsible for M&E. An inter-sectoral M&E commission was also successfully established and met regularly to monitor capacity-building activities in this area. The MEPU-EC established a single database to capture all information relevant to the Government (at central and deconcentrated levels) including information on the Pooled Fund and each of the DPs’ investment projects (central EMIS). Data were collected using the EMS and the newly developed survey. This database and the collection, transfer and analysis of data at various levels were strengthened under the FC-PSE. Further, this allowed entities to track PAAB activities and outcomes. In addition, a learning assessment was also established under the FC-PSE (with a lot of support by the Bank) which helped monitor student learning achievement and tracking progress over time by equating the assessments. Notable support was provided by the Bank and other DPs in terms of capacity strengthened with a number of DPs requiring use of results-based management approaches. 37. As a result of the restructurings, the number of PDO-level and intermediate-level indicators was reduced over time. This pattern also characterized the indicators reported in this ISRs, the first status report (PSR) presented 10 PDO-level and 29 intermediate-level indicators while the last ISR had 6 PDO-level and 11 intermediate-level indicators. Further, though the RPs provide an overview of changes in indicators (and targets) under the Project, as was common practice at the time, project teams had discretion to include and/or exclude indicators in these reports without seeking formal clearance (through a restructuring). The established M&E framework indicators (outputs and outcomes) were reported on in joint sector reviews and supervision reports (ISRs and aide-memoires) and again presented in each of the restructuring papers. 38. M&E Utilization. Data collection and analysis were particularly useful in light of the fragile and tenuous political and macroeconomic context which characterized Guinea at the time. M&E reporting in

27 The number of indicators reported in the ISRs varied across the life of the project from ten (10) PDO-level and twenty-nine (29) intermediate-level in the first project status report (PSR) to six (6) PDO-level and eleven (11) intermediate-level indicators.

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status reports were generally adequate and data were well-documented to the extent to which information was available. Available and reported data were used to inform decision-making and for assessing and guiding policy efforts during the annual joint reviews. For instance, teacher deployment was proven to be inequitable (favoring Conakry) which led to the development of a human resource (HR) management strategy. In addition, the finding that learning outcomes in reading performance were low led to the introduction of the early grade reading assessment (EGRA) and training of teachers in reading methods. On the basis of the information above, M&E design and utilization is rated Substantial during the pre-restructuring period and Substantial during the post-restructuring period. 2.4 Safeguard and Fiduciary Compliance Safeguards Compliance 39. Taking into account the construction and/or rehabilitation of schools, latrines and water points planned under the Project design, the ongoing FC-PSE triggered the Environmental Assessment OP (OP4.01) and the Involuntary Resettlement OP (OP4.12) resulting in a Category B rating. An Environmental and Social Impact Assessment (ESIA) was carried out to assess the Project’s environmental and social risks and impacts. During the first phase of the Project, no issues were reported. However, following the 2012 restructuring, it was noted that the provisions and guidelines of the Environmental and Social Impact Framework (ESMF) and Resettlement Policy Framework (RPF)28 had not been fully adhered to. Since there were no safeguard focal points in the SNIES, PCU or within contractors’ teams, no one was responsible for ensuring that these frameworks had been followed and that safeguard requirements were observed under the Project. Additional efforts were undertaken to address the shortcomings including the hiring of a safeguards specialist to provide guidance and raise awareness through workshops and a team was formed at the MOE and CN-PSE level to oversee compliance with safeguards. A stronger relationship between the Ministry of Education and the Ministry of the Environment was also established. 40. An Environmental and Social safeguards audit conducted in January 2014 did find there were some areas where environmental and social clauses were not fully adhered to, though these deficiencies were deemed to be rather minor as they did not lead to environmental and safeguard breaches. Indeed, the audit which was undertaken under the Pooled Fund concluded that the size and nature of infrastructure works carried out under the Project did not have any significant negative biophysical or socioeconomic impacts and did not result in the relocation of populations, loss of livelihood, or access to economic assets of populations. Additionally, there were no objections or counterclaims pertaining to the allocation of land for schools during the life of the Project. On the basis of the information above, overall safeguards compliance is rated Moderately Satisfactory.

28 These delineated the step-by-step procedure for sub-projects screening, review, implementation and monitoring.

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Fiduciary Compliance 41. Financial management. An assessment undertaken during preparation concluded that the public FM systems and processes were not adequate for use in managing the FC-PSE. However, the CN/PSE financial and accounting unit was deemed to have adequate capacity to manage FM and disbursement activities as this entity was also responsible for fiduciary management under the IDA-funded project. Reviews of CN/PSE up until that point had found that this unit had adequately managed the IDA-funded project and its staff had been trained in World Bank fiduciary procedures. At the time of preparation of the FC-PSE, the FM risk was Moderate and with some prescribed actions (in an FM action plan), the FM system would be further strengthened. An updated FM assessment in 2011 found that the FM arrangements were still adequate for the purposes of the FC-PSE. 42. Staffing remained adequate and proper accounting procedures were followed throughout project implementation with all supporting documents maintained for FC-PSE expenditures. Interim Unaudited Financial Reports (IFRs), which assessed finances for both the FC-PSE and the IDA-funded project, were prepared and submitted in a timely manner and were consistently deemed satisfactory.29 All of the audit reports for the FC-PSE were unqualified. Further, regular internal audits were carried out by the MEPU-EC Internal Audit Office. An FM manual, approved prior to Project effectiveness guided FM procedures while additional manuals were useful in guiding certain activities (i.e., provision of school grants and block grants to DSEE). The Bank also provided continued support in its supervision missions. FM was consistently rated Satisfactory under the Project. 43. Procurement. A participatory procurement capacity assessment during project preparation had revealed that the procurement specialist and three analysts working within the CN/PSE had adequate experience to fulfill their roles and to carry out procurement activities under the Project. In addition, the project procurement team for the IDA-funded Project was able to provide additional guidance and support to procurement activities under the Pooled Fund. Each of the DPs had authorized the World Bank to review procurement documents for no-objections on their behalf. The procurement activities and practices under the Project were adequate and undertaken in a timely manner and bidding documents were generally of good quality. The Bank team provided consistent guidance and follow-up on procurement activities and procurement capacity was further strengthened with support from a procurement analyst financed by the FC-PSE. 44. Though there were some limitations in fiduciary capacity, there were no major issues relating to the use of accounting systems, preparation of financial statements, adherence to auditing requirements, and qualifications of accounting and procurement personnel. Overall fiduciary compliance is, therefore, rated Satisfactory. 2.5 Post-completion Operation/Next Phase 45. The Government and DPs through the Pooled Fund together with the IDA-funded EFA Project established a good foundation for continued collaboration and partnership today. It also set the stage for continued support to a sector-wide approach to improving the education system in Guinea. In addition to the ongoing IDA-funded Stepping up Skills Project which aims to address the growing needs of youth as they transition through the education system and in search of employment opportunities, a US$38 million Pooled Fund Project for which the Bank is the SE was approved by the Regional Vice President in July 2015. The new Pooled Fund operation is funded by GPE, Ebola Recovery and Reconstruction Trust Fund

29 IFRs were even completed during the period of Bank disengagement when only AFD contributions continued to be provided within the Pooled Fund arrangement.

19

(ERRTF), AFD and UNICEF and is expected to become effective in the fall of 2015. The new Pooled Fund operation has incorporated many of the lessons acquired in the context of the FC-PSE and builds on and expands many of the activities supported by this operation (e.g., school grants and block grants) while also piloting some innovative approaches. The Government remains committed to maintaining important gains in the sector while continuing to make progress in terms of building capacity of the system while increasing access to and quality of education in the country. The recent Ebola Virus Disease (EVD) outbreak, however, has had, and is expected to continue to have an impact on the country’s ability to sustain the gains made and to devote the necessary financial and human resources to each of the social sectors. Recently, Guinea was one of three countries to receive World Bank support through the ERRTF which intends to maintain, as possible, continued provision of key social services including education. Given the recently approved funding to address EVD as well as the current GPE-funded operation, the prospect for maintaining and scaling up the gains made under the Project are good.

3. Assessment of Outcomes

3.1 Relevance of Objectives, Design and Implementation 46. The original PDO was relevant to the Guinean context at the time as it focused on supporting the objectives as articulated by the Government in its ESP which had also been widely endorsed by other DPs working in the sector. It also adhered to the principles of the 2005 Paris Declaration on Aid Effectiveness which guided approaches to development that emphasized ownership, alignment, and harmonization. In addition to directly supporting the Government objectives and harmonization with other DPs, it also capitalized on the growing support within the EFA-FTI for using a Pooled Fund mechanism. Moreover, the objectives were aligned with the aims of the PRSP II which had been developed around the same time and complemented the ongoing IDA-funded operation in the sector.30 Finally, it was well-aligned with the EFA FTI strategy and the Bank strategy for support to Africa. Following reductions in the financial resources available for the Pooled Fund and the growing needs for support to basic education, the PDO was appropriately revised. The new ESP approved in 2014 for the period of 2015 to 2017 aims to support increasing equitable access to quality education while also strengthening overall governance of the sector through capacity-building. This document is serving as the foundation for the development of the Government’s ten year sector development plan (Plan de Developpement decennal de l’éducation et de l’alphabétisation - PDDEA) which was endorsed in September 2014. The relevance of the original and revised PDO is rated High. 47. The original design was consistent with the country’s development priorities. The design of the original Program and the subsequent restructurings were appropriately situated within the broader aims of the Government’s 2008-2015 education strategy. The FCPSE and the Government’s strategy both aimed to improve the education system in line with: (i) the Millennium Development Goals (E-MDGs); (ii) the newly articulated sustainable development goals (SDGs); and (iii) the targets of the EFA-FTI Indicative Framework. The scope of the original Program and the restructurings are also in sync with the primary education sub-sector strategy of the Government. The PDO-level indicators captured the main areas for intervention: (i) improving access; (ii) improving quality; and (iii) improving management. Project preparation took into account lessons learned from previous projects and international good practice in the sector. However, the far-reaching aims of the Project and reliance on institutional capacity which was limited at the time, the original design was overly ambitious. In light of the information described above, the relevance of the original design is rated Modest.

30 The IDA-funded Project supported a number of activities including, among others: revision to the national education policy, preparation of an education sector MTEF, comprehensive student testing in Math and French, TA and block grants to schools, empowering school management committees and DP coordination.

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48. The revised design was focused on a select number of critical activities which were needed in order to achieve the overarching objectives of the Pooled Fund and were guided by a more accurate assessment of what could be feasibly achieved and implemented given the fragile context, limited institutional capacity, and significant reduction in available resources. Indeed, the reduced levels of pooled funding reflected, to some extent, the DPs’ re-assessment of implementation and absorptive capacity of the education sector. Appropriately, this was reflected in diminished scope of activities under the first restructuring, including the redistribution of civil works activities among different actors (based on their comparative advantages in specific areas) as well as adaption of modified activities to the existing capacity and implementation mechanisms. Further, the decision to focus on human resource management in the revised design reflected an increased emphasis on strengthening management within the Ministry. Modifications to indicators’ targets were scaled down under the second restructuring to reflect the withdrawal of KfW from the Pooled Fund. The advantage of the restructurings was that learning from previous years and from the IDA-funded operation resulted in the adoption of more effective methods in managing and implementing project activities. The consecutive restructurings helped with the continual stocktaking of capacity and progress, and under the second and third restructurings the end-of-project targets were recalibrated. The results chain was well-defined and continued to be strengthened under each restructuring with each activity logically linked to achievement of the PDO and based on a more realistic plan for implementation. The implementation design and institutions were continually reviewed throughout the Project’s implementation period. The project restructurings reflected the task team’s responsiveness to needed adjustments as implementation progressed, thereby maintaining their relevance. The methods continue to be relevant and are prioritized by the Government and development partners evidenced in the decision of the GPE-financed project to build on many of the approaches supported under the FC-PSE. The relevance of the revised design is rated Substantial. 3.2 Achievement of Project Development Objectives 49. The achievements of the FC-PSE are analyzed in relation to each of the sub-objectives of the Project. The overall outcome rating is weighted based on the portion of the total net grant amount disbursed during each of the project phases as presented in Table 2. Though the PDO was revised under the first restructuring to narrow its focus to basic education the three sub-objective of the PDO (in each iteration) were: (i) enhancing equitable access; (ii) enhancing quality; and (iii) strengthening decentralized management of the education system.

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Phase I: July 2008 – August 24, 2011

50. Though the Project was not made effective until October 2011, it is useful to explore this period as a distinct phase of the Project given the unique circumstances. Deterioration on a number of other key sector indicators was observed including decreases in the primary completion rate from 59 percent to 57 percent and increases in the primary repetition rate from 9 percent to 16 percent. The difficult political and economic context prevented adequate Government and DP support that would have been necessary to make progress on each of the key sector indicators some of which were monitored under the FC-PSE. The impact on learning outcomes could not be determined as the last national assessment prior to that time had been undertaken in 2007. As AFD and UNICEF were able to continue to operate in Guinea during this period of non-engagement on the part of the Bank, the PCU was able to remain functional and it was able to launch the construction of 99 primary classrooms planned under the Project. During this period, a baseline assessment of teachers’ competencies and knowledge was undertaken which informed the design of the in-service training program that was subsequently developed. As a result of lack of formal involvement and limited information on most of the performance measures, it is difficult to evaluate the level of progress towards achievement of the PDO during this period. Further, the Government’s contribution to the sector budget remained low during this phase with a peak in 2009. In light of the above, the rating for progress towards achievement of the PDO during this phase is rated Modest. Phase 2: August 25, 2011 - December 10, 2012 51. Objective 1: Enhancing Equitable Access to Basic Education. Following the restructuring of the Project in 2011, the FC-PSE aimed to increase equitable access to basic education. As the Project had only began implementation after the first restructuring, in order to undertake a civil works program of this size, significant preparatory activities were necessary in order to successfully roll out the civil works program nationwide. During this period, most procurement documents were reviewed and contracts signed related to construction. This included the signing of contracts with NGOs to construct classrooms using a community-based approach. A contract with the Bureau d’Ingenieur (BIC) was entered into in order to provide systematic technical support to the Ministry’s department of infrastructure (SNIES) while the study office (bureau d’etudes) had been tasked with conducting regular visits of the construction sites. In order to ensure quality of infrastructure, monitoring and supervision of school construction was supported by the project through workshops for construction supervisors and also by supporting SNIES in the development of a user friendly and pedagogic manual as a useful resource for site supervisors. In addition, during this roll out phase, targeted rural communities had developed their annual investment plans on which they were to financing for school construction. These preparatory activities laid the foundation for improvements in equitable access throughout the country while also strengthening capacity to manage a large school construction program. During this initial phase of implementation, the following trends were observed: GER (total/girls) in the nine target prefectures increased from 47 to 49.6 percent (and from 43 to 45.7 percent for girls); gross intake rate among girls increased slightly (from 77.7 percent to 78 percent); and the number of direct project beneficiaries reached 767,559.31 In terms of intermediate-level indicators, in addition to the 99 primary classrooms whose construction was being funded by the AFD, an additional 1,545 were under construction. Based on the evidence presented above, the rating for this objective within Phase 2 is Substantial. 52. Objective 2: Improving Quality of Basic Education. Following the 2011 restructuring, the FC-PSE aimed to improve the quality of basic education. Some of the key activities undertaken during this

31 It would not be appropriate to discuss achievements during this period relative to end-of-project targets as the restructuring was undertaken in 2012 (and reporting most recent available data at the time) and the project was scheduled to close in January 2013.

22

period included: a study tour of Ministry officials to learn from experience in the Gambia in carrying out the EGRA and efforts commenced to support the Government in undertaking the EGRA. The Project took steps to strengthen the project approach to the grants activity – with revision to the manual of procedures for school grants and the provision of training to local entities. The teacher trainee recruitment process was modified to ensure greater rigor in their selection which resulted in a reduced number of teacher trainees. To this end, the Government agreed to provide scholarships to incentivize individuals to improve their qualifications in order to qualify to become teacher trainees. A sensitization campaign was launched to increase the number of teacher trainee applicants. In addition, ENI processes were harmonized and similar methodologies for training adopted while the roles and responsibilities for administrative posts in the institutes were developed. With regards to girls’ education, 125 schools were selected for participation and 250 teachers from these schools were trained in French, reading and student-centered pedagogy. In addition, 3,750 girls were provided supplementary private tutoring in French, math and sexual education and learning materials were also provided to them. A TVET strategy was also supported and TA provided to introduce market driven programs in TVET skills centers linked to employment opportunities. The TVET teacher training school was also reopened. 53. Trends observed during this period were the following: girls’ success rate on the examination for entrance to 7th grade in 100 targeted schools increased from 49 to 53 percent; a student learning assessment system at the primary level had been partially established, 2,895,400 textbooks had been purchased and distributed to schools. The Bank and the Government had also developed an M&E system capable of tracking the delivery of textbooks up to the school level. This rigorous system provided incentives as it held local structures accountable for their delivery. In addition, 11,000 primary teachers were assessed in French and Math of which 3,000 were selected to benefit from in-service training. Based on the information above, the rating for this objective within Phase 2 is Substantial. 54. Objective 3: Strengthening Central and Deconcentrated Management of the Education System. Under the 2011 restructuring, the FC-PSE also aimed to strengthen management of the education system more generally, with an emphasis on strengthening human resource management. During this period, an inter-ministerial MTEF team was established with an accompanying methodology and action plan. The sector policy letter and sectoral analyses were being revised and expanded for the 2013-2015 period. An MTEF was achieved (leading the effort amongst all sectors) which benefited from the participation of Ministry officials in a South-South learning exchange with Senegal to learn from its experience in carrying out an MTEF. The statistical campaign for 2011 had been carried out with school level data made available and data for all subsectors was analyzed. Improvements in annual statistical data were noted with comprehensive and regular data available for the entire sector and teacher management as measured by the allocation of teachers (deployment index) was maintained at 0.70. Further, responsibility for budget management and execution (of resources provided by the FC-PSE) was transferred to the decentralized levels. Based on the above information, the rating for this objective within Phase 2 is Substantial. 55. In sum, given this was the first year of implementation, most activities commenced during this time frame. Though indicators had been established, the targets of a number of these measures could not have feasibly registered progress within a one-year time frame though the large majority of these targets were achieved or exceed by the end of the project.32

32 For example, implementation of annual budgeted action plans (PAAB) at the decentralized levels could also not be verified since funds had been transferred only in October 2012 in time for the beginning of the school year and implementation commenced only in 2012. And annual reading assessments planned under the Project had not yet been undertaken as the assessment tools were under development during this period.

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Phase 3: December 11, 2012 – December 25, 2013 56. Objective 1: Enhancing Equitable Access to Basic Education. Achievements during this period point to improvements in equitable access to basic education. During the third phase, construction of primary classrooms continued using the three selected approaches and concrete steps had been taken to address some of the issues identified related to monitoring and supervision of construction sites, including the establishment of a small committee to ensure regular follow up and reporting to donors on the status of the program. During this period, the following trends were observed: GER for the nine targeted prefectures increased from 49.6 percent to 53 percent (45.7 percent to 47.8 percent for girls); the number of direct project beneficiaries had more than doubled, increasing from 757,550 to 1,750,150; the gross intake rate also increased from 82 to 85 percent (and from 78 to 80 percent among girls); and construction and furnishing of 1,644 classrooms was underway with 615 of these having been fully completed. An estimated 73 percent of planned construction had been completed by this time with the remaining primary classrooms expected to be completed by September 2013. Based on the evidence presented above, the rating for this objective within Phase 3 is Substantial. 57. Objective 2: Improving Quality of Basic Education. Efforts supported under the Project to enhance the quality of basic education also continued. The procurement and delivery of textbooks increased significantly with the number of textbooks procured and delivered reaching 6,695,080 and continued to be monitored closely using local structures. Almost all public primary schools received grants which created a positive dynamic within the schools and a number of individuals benefited from training provided relate to their delivery. The 3,016 teachers that had been selected to benefit from in-service training participated in a 25-day training which took place in September of 2012. This training, which covered both academic and pedagogical skills, was supplemented with a five-day training in December as well as a number of other activities. Some of the supplemental activities supported included classroom observations, regional workshops, and training of school directors in learning assessment. It was found that 54 percent of teachers benefiting from this training had improved results compared to baseline. The sensitization campaign organized by the MEPU-EC continued to boost recruitment of qualified candidates and to ensure continuous monitoring of teacher trainees’ progress throughout the training. As a result, 1,321 high school graduates were elected to enter ENI compared to only 71 two years prior to this. Activities aimed at promoting girls’ education under the Project also contributed to the positive trends in their participation and performance on the 7th grade entrance exam. Approximately 75.4 percent of girls participating in the program passed the exam to enter 7th grade. In terms of learning assessments, 60 schools were implementing early grade reading assessments (EGRA); learning assessments was carried out in grade 4 and a tracer study of tertiary and TVET was ongoing. TA was ongoing to support the TVET teacher training school and to design new skills training programs linked to employment opportunities. Based on the evidence presented above, the rating for this objective within Phase 3 is Substantial. 58. Objective 3: Strengthening Central and Deconcentrated Management of the Education System. Important gains were observed in terms of strengthening management at the central and de-concentrated levels, where by this time all decentralized levels were implementing annual budgeted action plans. Sector directorates were made responsible for executing their own budget rather than the relying on the financial controller within the Ministry of Finance (MOF), marking a major shift from the arrangements prevailing prior to the Project’s launch. Annual education statistics data were made available at the beginning of the school year and teacher management had improved (with the deployment index, for Conakry only, reaching 76.6 (R-Squared)). With the support of TA from the Bank, training modules for the newly appointed management analysts (assistants gestionnaires) had been developed and the manual of procedures had been further expanded to spell out the government execution of the budget within a MTEF approach. In addition to the launch of a diagnostic study within the PER (related to the function of

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the DAFs), a review of the project management system was also under preparation. Based on the evidence presented above, the rating for this objective within Phase 3 is Substantial. Phase 4: December 26, 2013 - December 31, 2014 59. Objective 1: Enhancing Equitable Access to Basic Education. During the last period of the Project, planned activities to support an increase in equitable access to basic education under the operation were in their final stages of implementation. Although construction was initially behind schedule, by the end of the Project, 1698 classrooms had been constructed and furnished. As a result of efforts to strengthen supervision and control of the school construction program, the quality of the structures had improved significantly (regular supervision visits were conducted by a World Bank consultant). By the time of Project closing, GER for the nine targeted prefectures had reached 57 percent (and 53 among girls), a significant increase from just one year prior from 51 percent (and 46 percent among girls); the number of project beneficiaries reached 1,870,408 (an increase of more than 120,000 since the previous phase); and the gross intake rate had reached continued to increase from 86.1 percent (and 81.2 percent among girls) up from 85 percent (and 80 percent among girls) from just one year prior. Based on the evidence presented above, the rating for this objective within Phase 4 is Substantial. 60. Objective 2: Improving Quality of Basic Education. Improvements to quality continued through Project support to this area, particularly given the additional support to this area under the 2013 restructuring (with a reallocation of funding towards quality inputs). The number of textbooks provided by the end of project reached 7,162,393 increasing the number of textbooks available to students throughout the country and the textbook: student ratio. An additional 1,000 teachers benefitted from in-service teacher training as a result of the reallocation under the restructuring and an estimated 80 percent of teachers who had benefitted from this training showed improved results from baseline (a significant increase from 54 percent just one year prior). The Government provided rewards to 554 teachers to incentivize improvements to the quality of teaching practices. The Pooled Fund had also provided school grants to almost all primary public schools based on their school improvement plans. The learning assessment system which had been established had been improved upon and 79 schools were implementing annual reading assessments. Support to girls’ education initiatives continued with the provision of private tutoring and participation in the FIERE program (though the success rate dropped from 75 to 71 percent yet was significantly higher than the national average). Further, the percentage of students with a passing grade in French (grade 3) reached 15.36, which was an increase from baseline. More than 20 new programs catering to primary school drop-outs ( as well) were set up in four skills centers that use a competency-based approach with skills training linked to labor market demand. Further, a cohort of TVET teacher trainers completed their training in the TVET teacher training institute. Based on the evidence presented above, the rating for this objective within Phase 4 is Substantial. 61. An evaluation of school grants was also completed which found that the grants were disbursed in accordance with the procedures manual specifically developed for the purpose. The media campaign to sensitize beneficiaries proved to be effective introducing the necessary transparency for managing the fund. The evaluation found the following: (i) although the results cannot be solely attributed to the school grants, nevertheless, by the end of the Project, the grants had helped to reduce repetition rate and it had contributed to improved school participation rate and completion rate at grade 6 level, and an increased success rate at the grade 7 entrance examination; (ii) parents, the local administrations, and the local communities were heavily involved in monitoring the flow of the grants. Parents confirmed improved motivation and attributed their children’s success to the school grants. They voluntarily contributed to housing and supporting teachers, especially the community teachers; (iii) with the support of parents, new competencies were developed especially in the management of school assets and the mediation of conflicts; and (iv)

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community artisans and workmen volunteered their professional services to building school desks and chairs, classrooms and sports fields. 62. Objective 3: Strengthening Central and Deconcentrated Management of the Education System. The achievements were maintained and further scaled up during this last phase of the Project with all decentralized levels implementing annual budgeted action plans (PAABs). Annual sector statistics were again made available for the start of the school year and teacher management (as described using the deployment index, in Conakry only) had improved reaching 76.7 (R-Squared). The findings of the project management assessment were used by the Government during this phase to develop a proposal for the new GPE project which was submitted to DPs for their feedback/assessment and the findings from the PER and were disseminated in the fall of 2014. Significant capacity was built in the MEPU-EC toward programmatic budgeting and deconcentrating the budget execution to the MEPU-EC. This was a significant public financial management (PFM) reform supported by the Project and contributed to stronger linkages with the Ministry of Finance (MOF). Based on the evidence presented above, the rating for this objective within Phase 4 is Substantial. 3.3 Efficiency Implementation efficiency 63. Although the majority of the envisioned outputs and outcomes under the restructured design were effectively achieved by the project closing date, the efficiency of implementation was Modest given the initial lag in launching project-supported activities due to the political situation in addition to the need to extend the project closing date three different times in order to provide adequate time to complete activities which were essential for the achievement of the PDO. However, it is worth highlighting that the actual implementation period of the project was only three years. Cost-effectiveness 64. Primary school construction. The construction of primary classrooms under the Pooled Fund was relatively cost-effective when analyzed against other relevant comparators. The average cost per classroom built under the Pooled Fund ranged from US$13,104 to US$17,136 with a large portion of schools constructed under the Project built using the lower cost approaches (see table below). The average cost of a primary classroom in Ghana is estimated to be US$16,65133. In Sudan, an example of a post-conflict environment, the average cost of a primary classroom is estimated to be as high as US$30,00034. By the end of the project, the construction of the 1,644 had been completed using the three different approaches—community-based, NGOs, and through small and medium enterprises. The following table provides the comparisons:

33 Ghana Education Sector Project (EdSeP) Implementation Completion and Results Report, 2012. The average cost of a 6-classroom school constructed with EdSeP financing was estimated to be US$99,909. The unit cost a classroom (simple average of $99,909/6) is estimated to be US$16,651. 34 Republic of Congo, Support to Basic Education Project (PRAEBASE), Implementation Completion Report, 2014.

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Table 4. Guinea: Classroom Unit Costs by Provider

Method of Construction Cost (US$)

Pooled Funding Modalities PACV (community based) – GPE 13,104 Medium and Small Enterprises (rural) – GPE 13,734 Non-Government Organizations (NGOs) – GPE 14,490 Medium and Small Enterprises (urban) – GPE 17,136 Comparator UNICEF – GPE 17,577

Source: Guinea: Public Expenditure Review: Volume 1. June 2015.

65. Textbooks. The Project financed the procurement and delivery of textbooks at an average unit cost ranging from US$0.65 and US$1.4 for primary school core subjects. The unit cost is in line with other projects implemented during the same time period in the Ivory Coast, Niger and Burundi where primary school textbooks were acquired for unit costs ranging between US$1.1 and US$1.4. The procurement of textbooks was successfully completed and the contracts were signed with savings of GNF 3 million (about US$399). This helped with the procurement of additional textbooks. Efficiency gains (or savings) were realized due to lower unit costs as a result of the volume of textbooks that were procured.35 and also due to gains in the exchange rate differential between the US dollar and the GNF making it possible to procure a larger than estimated number of textbooks. 66. Girls academic achievement: although the scale of the intervention was small (about 4000 girls), specifically taylored tutoring in math and french for girls in 6th grade contributed to producing higher learning achievement and higher level of success in end of the primary examination to transition to secondary school.

67. The economic rationale for investing in basic education remains strong in Guinea. According to recent PREM estimates (2014), the estimated marginal returns to education (baseline – no education) are 64 percent for an individual who has completed primary schooling and 89 percent for an individual who has completed lower secondary schooling. Sustainability 68. The Project contributed to complementing and sustaining reforms that were already underway since the early-2000s. The Project financed the purchase of textbooks on the basis of experience gathered from implementing the IDA project. Consequently, the cycle for replacing textbooks was adopted. The approach to civil works through the use of multiple agents helped to address key constraints and put in place viable options for effective construction, making it possible to replicate the approach for the follow-on project36.

35 Gains in the exchange rate differential between the USD and the GNF also made it possible to procure a larger number of textbooks than had originally envisaged. 36 See the recently approved Project Appraisal Document for the “Pooled-Fund for Basic Education” Project dated July 9, 2015 in the amount of US$37.8 million from GPE and US$1 million from the Ebola Recovery and Reconstruction Trust Fund. Report No.PAD1085.

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3.4 Justification of Overall Outcome Rating Rating: Moderately Satisfactory 69. The table below summarizes the ratings for relevance of objectives/design, efficacy and efficiency. The combined overall outcome rating for the Project is Moderately Satisfactory.

Table 5. Overall Outcome Rating

First Phase (July 30, 2008 – August 24, 2011) By First Restructuring on August 25, US$0 Million Disbursed

0 percent of grant amount (0 percent of net grant amount – cumulative)

Relevance of Objectives and Design

Achievement of PDO (Efficacy)

Efficiency Overall Rating

High/Modest (Substantial) Modest Modest Moderately Unsatisfactory

Second Phase (August 25, 2011 - December 10, 2012) By Second Restructuring on December 11, 2012, US$25.56 Million Disbursed

64 percent of grant amount (64 percent of net grant amount -- cumulative) Relevance of

Objectives and Design Achievement of PDO

(Efficacy) Efficiency Overall Rating

High/Substantial Substantial Modest Moderately Satisfactory

Third Phase (December 11, 2012 – December 25, 2013) By Third Restructuring on December 26, 2013, US$38.76 Million Disbursed 33 percent of grant amount (97 percent of net grant amount – cumulative)

Relevance of Objectives and Design

Achievement of PDO (Efficacy)

Efficiency Overall Rating


Fourth Phase (December 26, 2013 - December 31, 2014) By Project Closing (December 31, 2014), US$40.0 Million Disbursed

3.3 percent of grant amount (100 percent of net grant amount -- cumulative) Relevance of

Objectives and DesignAchievement of PDO

(Efficacy)Efficiency Overall Rating


OVERALL OUTCOME RATING Relevance of

Objectives and Design Achievement of PDO

(Efficacy) Efficiency Overall Rating


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3.5 Overarching Themes, Other Outcomes and Impacts (a) Poverty Impacts, Gender Aspects, and Social Development 80. The Project contributed positively by adopting a clear pro-poor investment strategy, in that the districts with the largest levels of either absolute or relative need received a great proportion of financial assistance to improve access. This determination is based on the fact that the Project specifically targeted prefectures with the greatest need. As the ESP and PRSP II were developed at around the same time, they are strictly aligned. The project’s focus on promoting equitable access was a pro-poor strategy, promoting the inclusion of underserved populations, including populations living in rural areas as well as girls. The poverty impact of the Project was primarily in increasing access for the poorest to primary education, requiring greater budgetary allocation for education from Government. The Project also contributed to shifting the benefit incidence of public education expenditure in favor of the poorest quintile. 81. Approximately 48 percent of project beneficiaries were female. The Project provided specific incentives for girls’ education to meet education demand. A large number of schools benefited from interventions based on the FIERE approach (strategy to keep young girls in school) and 250 teachers were trained in French, reading and student-centered pedagogy. Approximately 3,750 grade 6 female students benefited from private tutoring in Mathematics and French. This was intended to increase their chances of successfully completing primary school. The expansion of the program showed encouraging results with 71.3 percent of girls participating in the program passing the exam to enter grade 7 compared to 63 percent of girls at the national (public and private) and 58 percent for public only. The social development benefits of greater numbers of females completing primary education is directly linked to reduced fertility, improved healthcare, and schooling for girls. (b) Institutional Change/Strengthening 82. There was strong institutional and political will to improve access and quality of education. MEPU-EC received targeted support for institutional capacity strengthening. School grants created a positive dynamic within the school, between the schools and communities. In addition, the deconcentrated levels also received support to catalyze intended partnerships. Sensitization campaigns with respect to teacher training helped to raise awareness about the importance of investing in teacher qualifications. Donor collaboration within the pooled fund setting was strong and there was positive complementarities between the AFD and the Bank as the SE of the FTI CF for the Pooled Fund. The successive restructurings strengthened the focus on institutional development at central and decentralized levels. This helped to institute the implementation of PAABs at decentralized levels. System oversight was progressively strengthened for the activities that were retained. (c) Other Unintended Outcomes and Impacts Not Applicable. 3.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops 85. A summary of the Government’s ICR can be found in Annex 7 of this report. The full report can be found in WBdocs. Due to the Ebola virus disease (EVD) outbreak, neither a beneficiary survey nor a stakeholder workshop could be undertaken.

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4. Assessment of Risk to Development Outcome Rating: Moderate 70. The Risk to Development Outcome following the end of the Project is rated Moderate. Institutional capacity was strengthened as a result of the training provided under the Project, specifically with regards to FM, procurement and overall project management. This was further complemented by support of the sector provided through the 12-year IDA-funded Project. Capacity in these areas will be further strengthened under the new Pooled Fund operation in order to successfully manage activities in the sector and to implement large-scale reform initiatives. Specifically, the Pooled Fund aims to strengthen overall governance of the sector through interventions to build capacity for effective management and coordination of the system, improved efficiency and consolidation and acceleration of interventions promoting decentralization. The Pooled Fund is supportive of the current ESP (2015-2017) and aims to maintain gains observed under this Project and to make more progress in terms of increasing equitable access to quality education and in terms of strengthening overall management of the sector. The Pooled Fund also supports a number of activities which were successfully implemented under this operation including, among others: the provision of school grants; construction of classrooms using a variety of implementation modalities; and training of teachers and provision of pedagogical support. 71. In 2014, the Government pledged to increase public funding for education to 19.2 percent of the national budget by 2017, corresponding to 4.6 percent of GDP, and increase the primary education allocation to 46.3 percent of the education budget also by 2017. It has also pledged to accelerate public financial management (PFM reforms). Despite the Government’s commitment, the country is facing some fiscal constraints which could pose some challenges to scaling up some of the project activities and continuing to ensure positive sector wide gains. In particular, the recurrent costs associated with the newly constructed classrooms will require financial support in terms of upkeep and proper maintenance. This issue is of particular concern in light of the recent EVD outbreak with Guinea being one of the most significantly affected countries in the region. The longer-term development impact of this project may be more limited than initially anticipated as the Government tries to contain and put a stop to the EVD epidemic. In an effort to control the outbreak, it was necessary to close schools for several months in turn limiting the instructional time of children. Though efforts are being made to recapture this time, this lapse can have a negative impact on learning outcomes. However, within the new GPE project, funding from the Ebola Recovery and Reconstruction Trust Fund37 is providing support to measures to limit its impact on the education sector. Further, a number of DPs have committed support to education for this upcoming period including AFD and UNICEF as well as IDA which is currently providing support to skills training for youth, many of whom are unemployed, which is critical in light of the growing pressure at the secondary level. In light of the above, the Risk to Development Outcome is rated Moderate.

5. Assessment of Bank and Borrower Performance

5.1 Bank Performance (a) Bank Performance in Ensuring Quality at Entry Rating: Moderately Unsatisfactory 72. The original FC-PSE was prepared in an environment of political and economic uncertainty. The design and scope of the program was based on the adoption of pooled funding mechanism as an overt expression of donor harmonization consistent with the 2005 Paris Declaration. The FC-PSE design was innovative, ambitious and aimed to support a wide variety of activities across the entire education sector.

37 Republic of Guinea. July 9, 2015. Pooled-Fund for Basic Education (FoCEB). Report No. PAD1085.

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The operation’s design was informed by lessons learned from similar operations and drew on the Bank’s experience within the education sector in Guinea. Despite the strong alignment of the Project’s objectives with the Government’s own strategic agenda and sector program, the FC-PSE’s original design was overly ambitious in terms of its scope and its estimation of the institutional and operational capacity of the Government to implement and monitor such a large operation. 73. Following the reduction in financing from the FTI and the reengagement of the Bank with the country, the FC-PSE was reviewed and restructured collaboratively with the Government and DPs to ensure that the design appropriately reflected the difficult country context at the time while also ensuring that adequate financing would be available to support the implementation of a select number of strategic interventions aimed at increasing equitable access to quality education and strengthening management in basic education. On the basis of the above, Quality at Entry is rated Moderately Unsatisfactory. (b) Quality of Supervision Rating: Satisfactory 74. Throughout the implementation period of the Pooled Fund, the Bank responded appropriately at each juncture to adjust the operation’s design in order to increase the likelihood of attaining the envisioned outputs and outcomes of the Project. Given the Bank’s long-standing support to the sector and a proactive task team, the operation was able to be restructured and the GA reinstated shortly after the Bank was officially allowed to reengage with the Government. It was one of the first DPs to reengage in the sector which was largely possible as a result of the efforts put forth to maintain continued dialogue with the technical teams in the country. The Bank provided both the much needed technical support and guidance in order to swiftly launch large scale project activities including construction of primary classrooms. In addition to participating in joint supervision missions, the Bank team held periodic meetings with the Government and DPs to discuss progress of the Pooled Fund, and more generally, progress within the sector and strategy development. This proactivity was particularly useful as neither an HD or education-tasked staff was in the country office at the time. The task team responded in a timely manner to requests to restructure the FC-PSE. Though the restructuring papers clearly show changes in the RF and in planned activities, the inclusion and exclusion of indicators in ISRs made it more difficult to systematically track achievements during the initial phase of the Project, though M&E design and utilization improved significantly during the course of the operation’s implementation. Supervision was carried out diligently for the portion of the funding that was administered by the Bank, the fiduciary due diligence was executed in a timely manner, the proceeds of the Grant were reallocated as necessary, and adherence to safeguards’ policies was monitored. 75. As the SE, the Bank played an important role in supporting donor coordination. In addition to joint supervision missions, the Bank ensured that M&E of the ESP was carried out and that budget planning and expenditure analysis were carried out in a timely manner. These aspects showed the Bank’s commitment to shared objectives with the Government and DPs active in the sector. One limitation of the Bank’s performance during supervision was the decision not to formally track and report on all funding committed to the Pooled Fund but rather to focus mostly on the portion for which it was legally mandated to supervise. Based on the above, Quality of Supervision is rated Satisfactory. (c) Justification of Rating for Overall Bank Performance Rating: Moderately Satisfactory 76. Overall Bank Performance is rated Moderately Satisfactory. This rating is based on the combined rating of Quality at Entry (MU), Quality of Supervision (S), and Overall Outcome Rating (MS).

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5.2 Borrower Performance (a) Government Performance Rating: Moderately Satisfactory 77. Although the operation was strongly aligned with the Government’s strategy it was originally overambitious and did not account for the capacities of the various institutions on which it relied for its effective implementation. The difficult political and economic environment which culminated in the coup d’etat in 2008 also undermined the Government’s ability to initially commit the resources required to implement the activities to be supported under the Pooled Fund. The GPE Grant was reinstated in 2011 following re-engagement of the Bank with a new Government. Though the Government’s capacity to provide support to the sector improved following the Bank’s formal reengagement, the level of resources made available to the sector did not remain consistent. Despite the difficulties and the challenges, the Government was proactive in its participation in supervision missions and joint annual sector reviews, preparing all of the necessary documentation required to evaluate progress and to ensure continued improvements. The Government also effectively carried out its fiduciary functions in particular submitting annual financial audits and detailed procurements plans. Efforts were also made to strengthen its support to supervision of construction activities and to strengthen adherence to safeguards requirements. Overall Government performance is rated Moderately Satisfactory due to the strong performance notwithstanding the challenging and shifting context in which the Project was implemented. (b) Implementing Agency or Agencies Performance Rating: Moderately Satisfactory 78. Despite the challenges, the technical teams in the ministries of education continued to function throughout the period from 2009 to 2011 when the Bank had formally disengaged with the country. During this period, as a result of the support of AFD and UNICEF, the PCU was able to remain intact and functional. Soon after the Bank’s formal re-engagement, the Ministry was able to quickly refocus its attention towards the Project and ensured its timely start up. Since many of the activities required support and input from decentralized levels, this operation required continued support from the central ministry. The Ministry also maintained strong dialogue with the Bank and worked collaboratively with the project team to adjust the project design in light of financial support available and the necessary refocusing of priorities. Once the groundwork for project activities was prepared in the Project’s initial phase, the project momentum remained high throughout the project life. Based on the above, the implementing agencies’ performance is rated Moderately Satisfactory. (c) Justification of Rating for Overall Grantee Performance Rating: Moderately Satisfactory 79. Overall Grantee Performance is rated Moderately Satisfactory. This rating is based on the combined rating of Government Performance (MS), Implementing Agency Performance (MS) and the Overall Outcome Rating (MS).

6. Lessons Learned 80. Project design should consider the fragility of the economic and political environment. The FC-PSE was designed in a politically, socially and institutionally fragile setting. The Pooled Fund approach to supporting the Government in achieving its sector objectives was appropriate in light of the 2005 Paris Declaration and efforts to promote sustainability of investments in the sector. The complex design of the FC-PSE which supported activities across the sector was reliant on strong institutional capacity and inter-ministerial coordination was ambitious. Though the project was significantly reduced in terms of scope and implementation needs in response to reduced funding in 2011 and 2012, it may have been useful at

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either of these times to reduce the scope even further in order to better ensure the timely and effective implementation of project-supported activities and effective M&E. 81. Pooled funding can be an effective mechanism for providing support to achievement of the Government’s strategic objectives in the education sector. This project’s strong alignment with the Government strategies and support from other DPs active in the sector including AFD, KfW and UNICEF promoted harmonization of efforts, reduced duplication of activities, and promoted continued support to the education sector during a period in which the Bank was only able to provide informal technical support to the Government. 82. The Bank’s swift engagement following periods of crisis can be instrumental in ensuring that Governments have the necessary financial and technical support to continue to implement their sector strategies and to provide services at a time when its own resources and capacity are more limited. The timely reengagement of the Bank under this Project was possible, in large part, due to the proactivity demonstrated by the Project team in maintaining technical dialogue with the Project team and with the DPs that were active on the ground throughout the period following the coup d’etat. 83. Building on the strengths of complementary projects and helps to avoid duplication, cumulatively reinforce institutional capacity, and strengthen national capacity. The FC-PSE design and implementation was able to benefit from the ongoing IDA-funded Project. In addition to ensuring complementary in activities, it laid the foundation for strong cooperation and coordination within the sector and a good working relationship with the Government. As a result of the Bank’s long-standing support to Guinea, the FC-PSE was able to re-engage in the sector and begin implementation shortly after the Bank’s formal reengagement.

84. The establishment of a robust M&E system is instrumental in ensuring that the outputs and outcomes of an operation are properly documented. Though the M&E system established and used in the context of the Project required input from various decentralized levels, the information provided by this system was critical for undertaking joint annual sector reviews and for adequately documenting and reporting on achievements observed under this operation.

7. Comments on Issues Raised by Grantee/Implementing Agencies/Donors

Not Applicable.

(a) Grantee/Implementing agencies (b) Cofinanciers/Donors (c) Other partners and stakeholders

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Annex 1. Project Costs and Financing

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

Components Pooled Fund EFA-FTI

Appraisal Estimate*

Appraisal Estimate for

EFA FTI (only)**

Appraisal Estimate for

reduced EFA FTI**

Actual EFA-FTI*

Percentage ofAppraisal

1. Improving equitable access to basic [and non-formal] education

119.0 90.9 23.7 22.7 96

2. Improving quality of basic [and non-formal] education

26.0 20.1 11.8 12.6 107

3. Strengthen the management of the education sector***

9.0 6.8 4.5 4.7 104

4. Unallocated 6.0

Total Baseline Cost 160 40.0 100.0

Physical Contingencies 0.0 0.0

Price Contingencies 0.0 0.0

Total Project Costs 160 40.0 100.0

Total Financing Required 160 117.8 40.0 40.0 100.0 * Of the US$117.8 million, US$77.8 million was canceled, bringing the total financing from EFA-FTI Catalytic Fund to US$40 million **These values are taken from the 2011 Restructuring Paper. ***Improving Management of the Educational System was the original title of Component 3 [denotes original Component title]

(b) Financing

Type of

Cofinancing Appraisal Estimate

(USD millions) Actual/Latest Estimate

(USD millions) EFA-FTI Pooled 117.8 40.0

Other (AFD & KFW) Pooled 42.2

AFD Pooled 27.0

KfW Pooled 15.2

Total Financing 160.0* Note: *Figure does not add up due to rounding.

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Annex 2. Outputs by Component

1. The original PDO of the Pooled Fund (FC-PSE) or Education Sector Development Program was “part of the Recipient’s Program, which contributes to enhancing equitable access to and quality in education at all levels, with focus on primary education and literacy training, while also strengthening central and deconcentrated management of the education system.” 38 In the main text of the Project Appraisal Document (PAD), ten project development objective (PDO)-level indicators39 are listed in the three key areas (also aligned with Components 1 through 3 of the FC-PSE design):

(i) Improving Equitable Access: (a) access rate in first grade (total/girls) to increase from 77 percent (to be determined) in 2007 to 88 percent (to be determined) in 2010; (b) primary GER to increase from 79 percent in 2007 to 90 percent in 2010; (c) ratio girls: boys in primary to increase from 0.83 in 2007 to 0.92 in 2010; (d) completion rate in primary (total/girls) to increase from 59 percent (to be determined) in 2007 to 71 percent (to be determined) in 2010; and (e) transition rate to lower secondary to decline from 73 percent40 in 2007 to 65 percent in 2010.

(ii) Improving Quality: (a) percentage of students with a passing grade in French (year 4) to

increase from 50 percent (2005 data) in 2007 to 55 percent (2009 data) in 2010; (b) percentage of students with a passing grade in Math (year 4) to increase from 51 percent (2005 data) in 2007 to 57 percent (2009 data) in 2010; and (c) repetition rate in primary to remain stable at 9 percent from 2007 to 2010.

(iii) Improving Management of the Educational System: (a) portion of recurrent State expenditures

for education to increase from 13.7 percent in 2007 to 18.1 percent in 2010; and (b) portion of education expenditures for primary to increase from 33 percent in 2007 to 42 percent in 2010.

2. The GA dated July 30, 2008 only specifies that the Recipient shall monitor and evaluate the progress of the Program and the Project and prepare Program and Project Reports. 3. This Program was designed in the broader context of the Government’s ESP (2008-2015)41 which aimed to: improve the country’s education system in line with the education MDGs (E-MDGs) and the targets of the EFA-FTI Indicative Framework support the development of human capital as well as economic growth; and in turn contribute to poverty reduction in the country. The education strategy was also detailed in the sector policy letter. Support to the Government in achievement of its sector objectives would be provided through the Pooled Fund (FC-PSE) with contributions from EFA-FTI Catalytic Fund, KfW and AFD. In addition, IDA support to the ESP and the Government’s reform program was provided through the EFA Project which was under implementation at the time that the Pooled Fund was being prepared (this operation was designed as a three-phase Adaptable Program Loan (APL) for the period 2001-2013).

38 In the main text of the PAD, this is worded a little bit differently with the objective of the FC-PSE being to enhancing equitable access to and quality in education at all levels – with focus on primary education – and literacy training, while also strengthening central and deconcentrated management of the education system. 39 The GA does not make any references to the KPIs. 40 In a subsequent implementation status report (ISR) this figure was described as an accurate with the accurate baseline value listed as 65 percent. 41 Guinée Description du Programme Sectoriel de l’Education 2008-2015 (PSE)—version octobre 2007 is available in electronic and print format from the National Coordination of the PSE in Guinea and by request to the World Bank.

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4. The rationale behind the Pooled Fund approach was that it would promote harmonization of donors’ support of Government efforts, improve efficiency of efforts to support the ESP while also reducing transaction costs for Government in line with the 2005 Paris Declaration on Aid Effectiveness. The Pooled Fund (FC-PSE) supported a sub-set of the ESP referred to as the ‘FC-PSE’ program. The ESP and Guinea’s PRSP II were elaborated at the same time and as a result were strongly aligned. Further, the FC-PSE indicators in the original design were taken directly from the ESP Matrix.

5. The FC-PSE aimed to address a number of challenges including: (i) low access to education for the poor (particularly in rural areas and among girls); (ii) high dropout rates, in part a result of a large number of schools not providing the complete six-grade primary cycle. Though multigrade schooling had been encouraged in sparsely populated areas, it had been implemented with only varying levels of success; (iii) increase in number of students in secondary education leading to overcrowded classrooms (necessitating improved retention at this level); (iv) limited quality of education despite investments to improve teaching and learning, especially in primary education, to date; (v) and management methods in education administration which were inefficiency and not likely to be sustainable without continued support from DPs; and (vi) insufficient allocations for the sector and allocations within the sector. 6. As described earlier, the Project was approved in 2008 and was scheduled to close on August 31, 2011. Though it was scheduled to become effective in January 2009, it did not become effective until October of 2011. In 2008, there was a coup d’etat in Guinea which prevented the FTI Grant from becoming effective, although project effectiveness conditions had been met. The World Bank Policy [OP7.30] "Dealings with De Facto Governments" had been triggered and several months later, in September 30, 2009 the country fell into arrears. This led to the suspension of the Bank’s formal engagement in the country and the sector, for the FC-PSE this meant that the Bank had not legally entered into its role as SE.42 In 2011 when the arrears were cleared, the Bank formally reengaged with the country On June 6, 2011 the waiver to World Bank OP13.00 "Signing of Legal documents and effectiveness of loans and credits" was issued and approximately three months later on September 22, 2011, the EFA-FTI Grant agreement was reinstated and the Pooled Fund (with Bank as SE) became effective on October 20, 2011. 7. The Project was restructured three separate times, as follows: 8. Just prior to the reinstatement of the GA, the project was restructured (level 1). The FTI amount for the Pooled Fund was reduced from US$117.8 million to US$64 million, with the World Bank assigned to manage US$40 million as the SE and UNICEF had been made responsible for US$24 million as Implementing Entity (IE) as it was able to continue its activities in the sector during the period of disengagement. The PDO was revised to focus only on providing support to basic education, and the scope of activities was reduced and reoriented. Finally, the project closing date was extended from the original date of August 31, 2011 to January 15, 2013 as this extension was stipulated by FTI. 9. The Project was restructured again (level 1) in 2012 in response to the withdrawal of KfW from the pooled fund since legislative elections did not take place as anticipated. The Project activities and relevant targets were reduced (though the PDO was not revised) and a more realistic timeframe was introduced allowing for additional time to complete project activities) with a one year extension of the project closing date from January 15, 2013 to December 31, 2013. The additional time was particularly critical for the school construction activities – as it would require more than one year of implementation

42 However, the first disbursement by the French Agency for Development AFD within the pooled fund, provided sufficient funding to ensure that the Project Coordination Unit (PCU) could remain operational. The AFD also funded the evaluation of teachers (to prepare for in-service training) and the launch of the construction of 99 primary classrooms. Providing a total amount of funding during this period of US$2.3 million.

36

(and accounted for a large portion of the grant funding) although the design comprising three modalities of construction [NGOs, Memorandum of Understanding with the Programme d’Appui aux Communautés Villageoises Program in support of village communities (Community Driven Development Project supported by the World Bank)], and Small and Medium Enterprises, remained fully appropriate. 10. The last restructuring (level one) was approved on December 26, 2013. Under this restructuring, financing from the Pooled Fund was reallocated from the construction of middle schools which could not be completed by the project closing date to quality inputs including in-service teacher training, the provision of learning materials for early grades and textbooks benefiting secondary schools, and for continued technical assistance. In addition, the closing date was extended by one year from December 31, 2013 to December 31, 2014 and indicators and targets were adjusted accordingly. 11. Most of the FC-PSE activities were piloted or even implemented nationwide during the previous Government-supported Education for All Program (Programme Education Pour Tous43--PEPT), and were amended to reflect the results of various PEPT evaluations. Further, specific operational guidelines had been developed for certain broad categories of activities, such as teacher training, school construction, and grant-supported school improvement projects. These manuals were included in the suite of guidelines that comprised the Operational Manual of the Education Sector Program—OM-PSE, endorsed by the Government and donors. The original FC-PSE program comprised three main components: (i) improving equitable access to basic and non-formal education; (ii) improving quality of basic and non-formal education; and (iii) strengthening management of the education sector.

12. The program and project scope of activities were amended during the first project restructuring in 2011, with some activities being retained with amendments, some new, and one activity that was dropped. The following table highlights the changes to the Project design (as reflected in the GAs over the Project life).

Table 1. FC-PSE Project--Scope of Activities

Original Program First Project

Restructuring (2011)

Second Project Restructuring

(2012)

Third Project Restructuring

(2013)

Part A: Improving Equitable Access to basic and non-formal education

Part A: Improving Equitable Access to basic education [no non-formal education] [amended]

Part A: Improving Equitable Access to basic education

Part A: Improving Equitable Access to basic education

(i) Improving pre-school, primary and secondary level educational infrastructure by constructing or rehabilitating and

(i) Improving [no pre-school] primary and secondary level educational infrastructure by constructing or rehabilitating and

(i) Reduction of primary school construction by 240 classrooms from 1,900 to 1,660; Reduction of secondary school level construction

(i) construction of secondary schools was cancelled

43 PEPT was the Government’s education sector program prepared in 2001. It aimed to support the achievement of the EFA goals for the period 2002-06. It was a first effort to unite all donors around a common framework in support of the Government-led education sector program. However, it was short lived, in part, because there was no common framework to finance the PEPT and donors continued to implement their activities independently. Under the PSE, some donors decided to use a common funding mechanism and all donors had agreed to sign a Partnership Agreement committing them to align their interventions in the education sector with the Government-led PSE.

37

furnishing of primary classrooms and secondary classrooms, as well as classroom pre-schools in targeted areas.

furnishing primary classrooms [no classroom pre-schools] and secondary classrooms in targeted areas. [amended]

from 200 to 72 lower secondary classrooms. [targets revised]

(ii) Expanding educational access of primary-level students with special needs by providing additional training for teachers, provision of special education materials and minor civil works.

(ii) Expanding educational access of primary-level students with special needs by providing additional training for teachers and provision of special education materials [no minor civil works]. [amended]

(ii) Cancelation of partnership agreement with specialized organizations for inclusive education and 50 percent reduction in materials to be acquired. [targets revised]

(ii) Unchanged

(iii) Expanding access to literacy training by financing literacy courses, providing professional development for literacy trainers and supervisors responsible for monitoring and evaluation, and supporting the National Literacy Secretariat (Secrétariat National de l’Alphabétisation).

(iii) (a) Developing strategies and establishing partnerships with the private sector as well as identifying sectors of growth through the provision of technical assistance (including the carrying out of surveys and studies); and (b) constructing, rehabilitating and furnishing professional integration (TVET) centers at selected sites. [new]

(iii) Validation of sectors of growth has been finalized, the partnership with international institutions and private sector remains. Cancelation of construction and rehabilitation of professional integration centers, and a new strategy of vocational training linked to mining sector is being introduced (technical assistance and construction/rehabilitation of technical training centers). A detailed action plan developed with the recruitment of the new technical assistance. [amended]

(iii) Unchanged

(iv) Establishing professional integration courses for primary and lower secondary leavers by constructing and equipping professional integration centers throughout the country, preparing teaching materials, and training teachers.

(iv) Promoting school demand through (a) private courses to girls to keep them in school; (b) provision of school kits to children in the targeted poorest prefectures; (c) carrying-out social mobilization in selected sub-prefectures through sensitization campaigns; and (d) provision of teaching aids to, and training of, targeted teachers in multigrade classrooms. [new]

(iv) Sensitization campaign for the demand of schools for one year instead of two and an increase in the provision of private tutoring for girls to keep them in school. [amended]

(iv) Unchanged

38

(v) Increasing availability of skilled labor for the mining sector by creating short-term professional training courses.

[dropped]

Part B. Improving Quality of Basic and Non-formal Education

Part B. Improving Quality of Basic [dropped Non-formal]Education [amended]

Part B. Improving Quality of Basic Education

Part B. Improving Quality of Basic Education

(i) Provision of textbooks for public and private primary and secondary schools as well as basic learning supplies for pre-schools

(i) Provision of textbooks for public primary and secondary schools as well as carrying out a technical and financial audit on such provision [amended]

(i) Cancelation of acquisition of storage space for the textbooks and cancelation of secondary level textbooks; due to the open and competitive process, the number of textbooks for primary have been increased. [amended]

(i) Unchanged

(ii) Construction of 8 teacher colleges (Ecole Normale d’Instituteurs) and provision of subsidies to said colleges and financial incentives to teachers

(ii) (a) Rehabilitating selected teacher colleges; (b) strengthening teacher training curriculum through technical assistance; (c) assisting with the development of Performance Contracts with the Teacher Training Institutes; and (d) supporting teacher training pursuant to Performance Contracts. [new]

(iii) Modification of pre-service teacher training activities through cancelation of supplemental extension civil works at the Teacher Training Institutions (ENIs and removal of performance contracts). [amended; target revised]

(iii) Unchanged

(iii) Supporting continued training for primary and secondary teachers, and school directors at the regional and local levels

(iii) Supporting in-service training for primary and secondary teachers, and primary school directors [amended]

(ii) Reduction of in-service teachers trained from 5,000 to 3,000. [target revised]

(ii) An additional 1,000 secondary teachers were provided training

(iv) Provision of Block Grants to schools and DSEE

(iv) Provision of Block Grants to primary schools and DSEE in support of their school improvement projects. [amended]

(v) Cancelation of provisional stipends for newly certified teachers. Block grants to primary schools and School Delegations for Elementary Education DSEE in support of their school improvement project remains unchanged. [amended; target revised]

(v) Unchanged

39



(vi) Nation-wide student learning assessment in 4th grade remains unchanged; Support to piloting of Early Grade Reading Assessment (EGRA) remains unchanged with teacher training decreased by one year, and cancelation of in-service teacher training for secondary teachers. [slightly amended]

(vi) Indicator for learning assessment was changed to allow for comparability over time.

(vi) Implementing curriculum reform in higher education

(vi) Supporting reform in higher education and carrying-out [amended]

(iv) Completion of the public expenditure review of higher education is the only study remaining in this sub-sector.

(iv) PER was a full education sector PER but a study of higher education scholarships and transfers was financed to supplement the PER.

Part C: Strengthening Management of the Education Sector

Part C: Strengthening Management of the Education Sector *



(i) Enhancing the capacity of the National Service for Educational Infrastructure and Equipment (SNIES) to monitor civil works through technical advisory services, equipment and training

(i) Strengthening the CN-PSE’s capacity at the central and deconcentrated levels to monitor civil works through technical advisory services, equipment and training [new]

(i) Unchanged (i) Unchanged

(ii) Construction and rehabilitation of regional and prefectural administrative education office

(ii) Strengthening the MEPU-EC’s planning and monitoring capacity at the central, regional and prefectural levels [amended]

(ii) Unchanged (ii) Unchanged

(iii) Strengthening planning and monitoring capacity at the regional prefectural level

(iii) Strengthening the MEPU-EC’s human resources management through the provision of computer software and technical assistance for the improvement of human resource procedures [new]

(iii) Unchanged except for those linked to human resource management, which will be supported under the International Development Association (IDA) Education for All project.

(iii) Unchanged

(iv) Strengthening the MEPU-EC by providing training for management and coordination of the Program, equipment,

(iv) Strengthening the overall management and coordination capacity of the MEPU-EC by providing, inter alia, training,

(iv) Unchanged (iv) Unchanged

40

development of intranet, and operating costs

equipment and internet [amended]

13. Under each of the restructurings, the RF was modified with indicators re-aligned to be re-oriented from a Program perspective to a Project level reporting format through the project restructurings to make them manageable. Further, they were calibrated (including PSRs and ISRs44) to available levels of partner funds (especially FTI or GPE and KfW) and reduced scope of the project. Changes introduced to the Results Framework (revised, new and dropped indicators) under the Project can be found in Annex 10. This annex describes adjustments made to baseline values and end-of-project targets and provides a brief description of the level of achievement for each PDO- and intermediate-level indicator. 14. Progress made under each Project Component is described below.

Overview of Achievements by Component Component 1: Improving Equitable Access to Basic and Non-Formal Education [Appraisal: US$119 million; Original FTI Financing: US$90.9 million; Revised FTI Financing45: US$23.7 million; Actual Expenditure: US$22.7 million].46 15. Objective: This Component aimed to support equitable and regulated access to basic education and non-formal education. It aimed to increase enrollment rates in pre-school, and primary and lower secondary education, support specific measures for disabled children, and expand access to literacy training. In addition, this component was intended to support the creation of professional integration courses for primary and lower secondary leavers, as well as professional training specifically oriented towards the mining sector. Sub-components included: (a) improving pre-school, primary, and secondary level educational infrastructure by constructing/rehabilitating and furnishing primary and secondary classrooms; (b) expanding educational access of primary-level students with special needs, additional training for teachers, provision of special education materials, and, in some cases, minor civil works, additional pedagogical support, including in monitoring and evaluation, to teachers at the schools; (c) expanding access to literacy training; (d) establishing professional integration courses for primary and lower secondary leavers; and (e) increasing availability of skills labor for the mining sector. Over the course of the Project, 1,698 primary school classrooms were constructed. Revisions to Component 1 during the life of the Project is presented in Table 1 below. During the first restructuring, Component 1 was revised to focus only on basic education with a few activities including those supporting pre-school and provision of literacy training being taken over by UNICEF and skills availability for the mining sector also no longer supported under the revised design. Under the third restructuring, the construction of lower secondary schools was no longer included as a Project-supported activity under this Component.

44 The number of indicators reported in the ISRs varied across the life of the project from ten (10) PDO-level and twenty-nine (29) intermediate-level in the first project status report (PSR) to six (6) PDO-level and eleven (11) intermediate-level indicators. 45 These are the values for the 2011 Restructuring Project which included revised financial figures based on the revised FTI allocation. 46 Actual expenditure for the components reflect spending under the Project supported by the EFA-FTI Catalytic Grant.

41

Achievements 16. During the first phase of the Project, AFD was able to fund the launch of construction of 99 primary classrooms planned under the Project. Following the restructuring of the Project and its effectiveness in 2011, the FC-PSE aimed to increase equitable access to basic education. As the Project had only began implementation after the first restructuring, in order to undertake a civil works program of this size, significant preparatory activities were necessary in order to successfully roll out the civil works program nationwide. During this period, most procurement documents were reviewed and contracts signed related to construction. This included the signing of contracts with NGOs to construct classrooms using a community-based approach. A contract with the Bureau d’Ingenieur (BIC) was entered into in order to provide systematic technical support to the Ministry’s department of infrastructure (SNIES) while the study office (bureau d’etudes) had been tasked with conducting regular visits of the construction sites. In order to ensure quality of infrastructure, monitoring and supervision of school construction was supported by the project through workshops for construction supervisors and also by supporting SNIES in the development of a user friendly and pedagogic manual as a useful resource for site supervisors. In addition, during this roll out phase, targeted rural communities had developed their annual investment plans on which they were to financing for school construction. These preparatory activities laid the foundation for improvements in equitable access throughout the country while also strengthening capacity to manage a large school construction program. During this initial phase of implementation, the following trends were observed: GER (total/girls) in the nine target prefectures increased from 47 to 49.6 percent (and from 43 to 45.7 percent for girls); gross intake rate among girls increased slightly (from 77.7 percent to 78 percent); and the number of direct project beneficiaries reached 767,559.47 In terms of intermediate-level indicators, in addition to the 99 primary classrooms whose construction was being funded by the AFD, an additional 1,545 were under construction. 17. During the third phase, construction of primary classrooms continued using the three selected approaches and concrete steps had been taken to address some of the issues identified related to monitoring and supervision of construction sites, including the establishment of a small committee to ensure regular follow up and reporting to donors on the status of the program. During this period, the following trends were observed: GER for the nine targeted prefectures increased from 49.6 percent to 53 percent (45.7 percent to 47.8 percent for girls); the number of direct project beneficiaries had more than doubled, increasing from 757,550 to 1,750,150; the gross intake rate also increased from 82 to 85 percent (and from 78 to 80 percent among girls); and construction and furnishing of 1,644 classrooms was underway with 615 of these having been fully completed. An estimated 73 percent of planned construction had been completed by this time with the remaining primary classrooms expected to be completed by September 2013. 18. During the last period of the Project, planned activities to support an increase in equitable access to basic education under the operation were in their final stages of implementation. Although construction was initially behind schedule, by the end of the Project, 1698 classrooms had been constructed and furnished. As a result of efforts to strengthen supervision and control of the school construction program, the quality of the structures had improved significantly. By the time of Project closing, GER for the nine targeted prefectures had reached 57 percent (and 53 among girls), a significant increase from just one year prior from 51 percent (and 46 percent among girls); the number of project beneficiaries reached 1,870,408 (an increase of more than 120,000 since the previous phase); and the gross intake rate had reached continued to increase from 86.1 percent (and 81.2 percent among girls) up from 85 percent (and 80 percent among girls) from just one year prior.

47 It would not be appropriate to discuss achievements during this period relative to end-of-project targets as the restructuring was undertaken in 2012 (and reporting most recent available data at the time) and the project was scheduled to close in January 2013.

42

Component 2: Improving Quality of Basic and Non-Formal Education [Appraisal: US$26 million; Original FTI Financing: US$20.1 million; Revised FTI Financing: US$11.8 million; Actual Expenditure: US$12.6 million.]48 19. Objective: The objective of this Component was to improve the quality and relevance of basic and non-formal education, with particular focus on the acquisition of pedagogical materials, provide initial and continued teacher training, provide block grants to Primary Education Delegations (Délégation Scolaire de l’Enseignement Élementaire--DSEE), the MEDPU-EC administrative level below the prefecture, and student evaluations. The following six sub-components were supported under Component 2: (i) Acquiring and supplying free textbooks and teachers’ guides for public and private primary and secondary schools; (ii) supporting initial training for primary and secondary teachers; (iii) Supporting continued training for primary and secondary teachers; (iv) Providing block grants to schools and DSEE; (v) Conducting nation-wide student learning assessments at primary level (year 4—2008; year 6—2009; and year 2—2010) and lower secondary level (2009); and (vi) Implementing curriculum reform in higher education. Revisions to Component 2 during the life of the Project, can be found in Table 1 above. Under the first restructuring in 2011, the Component description was revised to focus only on basic education with adjustments to activities and introduction of a few new activities. Under the third restructuring, additional funding was reallocated to this Component for a number of activities including the provision of additional textbooks and training of lower secondary school teachers. Achievements 20. During the first phase, AFD was able to support the evaluation of teachers. Following the 2011 restructuring, the FC-PSE aimed to improve the quality of basic education. Some of the key activities undertaken during this period included: a study tour of Ministry officials to learn from experience in the Gambia in carrying out the EGRA and efforts commenced to support the Government in undertaking the EGRA. The Project took steps to strengthen the project approach to the grants activity – with revision to the manual of procedures for school grants and the provision of training to local entities. The teacher trainee recruitment process was modified to ensure greater rigor in their selection which resulted in a reduced number of teacher trainees. To this end, the Government agreed to provide scholarships to incentivize individuals to improve their qualifications in order to qualify to become teacher trainees. In addition, a sensitization campaign was launched to increase the number of teacher trainee applicants. In addition, ENI processes were harmonized and similar methodologies for training adopted while the roles and responsibilities for administrative posts in the institutes were developed. With regards to girls’ education, 125 schools were selected for participation and 250 teachers from these schools were trained in French, reading and student-centered pedagogy. In addition, 3,750 girls were provided supplementary private tutoring in French, math and sexual education and learning materials were also provided to them. 21. During the third phase of the Project, efforts supported under the Project to enhance the quality of basic education also continued. The procurement and delivery of textbooks increased significantly with the number of textbooks procured and delivered reaching 6,695,080 and continued to be monitored closely using local structures. Almost all public primary schools received grants which created a positive dynamic within the schools and a number of individuals benefited from training provided relate to their delivery. The 3,016 teachers that had been selected to benefit from in-service training participated in a 25-day training which took place in September of 2012. This training, which covered both academic and pedagogical skills, was supplemented with a five-day training in December as well as a number of other activities. Some of the supplemental activities supported included classroom observations, regional workshops, and training of

48 Ibid.

43

school directors in learning assessment. It was found that 54 percent of teachers benefiting from this training had improved results compared to baseline. The sensitization campaign organized by the MEPU-EC continued to boost recruitment of qualified candidates and to ensure continuous monitoring of teacher trainees’ progress throughout the training. As a result, 1,321 high school graduates were elected to enter ENI compared to only 71 two years prior to this. Activities aimed at promoting girls’ education under the Project also contributed to the positive trends in their participation and performance on the 7th grade entrance exam. Approximately 75.4 percent of girls participating in the program passed the exam to enter 7th grade. In terms of learning assessments, 60 schools were implementing early grade reading assessments (EGRA); learning assessments was carried out in grade 4 and a tracer study of tertiary and TVET was ongoing. 22. Improvements to quality continued through Project support to this area, particularly given the additional support to this area under the 2013 restructuring (with a reallocation of funding towards quality inputs). The number of textbooks provided by the end of project reached 7,162,393 increasing the number of textbooks available to students throughout the country and the textbook: student ratio. An additional 1,000 teachers benefitted from in-service teacher training as a result of the reallocation under the restructuring and an estimated 80 percent of teachers who had benefitted from this training showed improved results from baseline (a significant increase from 54 percent just one year prior). The Government provided rewards to 554 teachers to incentivize improvements to the quality of teaching practices. The Pooled Fund had also provided school grants to almost all primary public schools. The learning assessment system which had been established had been improved upon and 79 schools were implementing annual reading assessments. Support to girls’ education initiatives continued with the provision of private tutoring and participation in the FIERE program (though the success rate dropped from 75 to 71 percent yet was significantly higher than the national average). Further, the percentage of students with a passing grade in French (grade 3) reached 15.36, which was an increase from baseline. Component 3: Improving Management of the Educational System [Appraisal: US$9 million (6 percent of pool-funded program); Original FTI Financing: US$6.8 million; Revised FTI Financing: US$4.5 million; Actual Expenditure: US$4.7 million].49 23. Objective: The objective of this component was to strengthen the central and deconcentrated management of the sector, including its infrastructure services, by supporting four sub-components were: (i) enhancing the SNIES capacity to monitor civil works; (ii) constructing and rehabilitating regional and prefectural administrative education offices; (iii) strengthening planning and monitoring capacity at the regional and prefectural level; and (iv) strengthening the MEPU-EC at the central level by supporting a number of its functions. In the Government ICR the objective is articulated as follows: to improve the capacity for mobilizing, programming, allocating and management of resources by developing appropriate management procedures for programming and following up on implementation. Revisions to Component 3 during the life of the Project can be found in Table 1 above. Under the 2011 restructuring, the construction of administrative offices was dropped from this Component and increased emphasis was placed on human resources management. Achievements 24. Under the 2011 restructuring, the FC-PSE also aimed to strengthen management of the education system more generally, with an emphasis on strengthening human resource management. During this period, an inter-ministerial MTEF team was established with an accompanying methodology and action plan. The sector policy letter and sectoral analyses were being revised and expanded for the 2013-2015

49 Actual expenditure for the components reflect spending under the Project supported by the EFA-FTI Catalytic Grant.

44

period. An MTEF was achieved (leading the effort amongst all sectors) which benefited from the participation of Ministry officials in a South-South learning exchange with Senegal to learn from its experience in carrying out an MTEF. The statistical campaign for 2011 had been carried out with school level data made available and data for all subsectors was analyzed. Improvements in annual statistical data were noted and teacher management as measured by the allocation of teachers (deployment index) was maintained at 0.70. Further, responsibility for budget management and execution (of resources provided by the FC-PSE) was transferred to the decentralized levels. 25. Important gains were observed in terms of strengthening management at the central and de-concentrated levels during the third phase of the Project, where by this time all decentralized levels were implementing annual budgeted action plans. Sector directorates were made responsible for executing their own budget rather than the relying on the financial controller within the Ministry of Finance (MOF), marking a major shift from the arrangements prevailing prior to the Project’s launch. Annual education statistics data were made available at the beginning of the school year and teacher management had improved (with the deployment index, for Conakry only, reaching 76.6 (R-Squared)). With the support of TA from the Bank, training modules for the newly appointed management analysts (assistants gestionnaires) had been developed and the manual of procedures had been further expanded to spell out the government execution of the budget within a MTEF approach. In addition to the launch of a diagnostic study within the PER (related to the function of the DAFs), a review of the project management system was also under preparation. 26. 27. The achievements were maintained and further scaled up during this last phase of the project with all decentralized levels implementing annual budgeted action plans (PAABs). Annual sector statistics were again made available for the start of the school year and teacher management (as described using the deployment index, in Conakry only) had improved reaching 76.7 (R-Squared). The findings of the project management assessment were used by the Government during this phase to develop a proposal for the new GPE project which was submitted to DPs for their feedback/assessment and the findings from the PER and were disseminated in the fall of 2014.

45

Annex 3. Economic and Financial Analysis Context50 1. The main goals of the Government of Guinea as articulated in the Education Sector Plan (ESP) for 2008-2015 are to achieve universal primary access to primary education and full gender parity and to make progress in terms of the primary completion rate and gender parity at the secondary education level. In addition, it aims to increase the GER at the pre-primary and lower secondary levels. Achieving both 100 percent access to grade 1 and gender parity in primary education would entail annual rate increases of 2.9 percent and 2.1 percent, respectively. The pace of improvement in other indicators would need to be greater (between 3 percent and 7 percent annually).

Table 1. Education Sector Plan 2008-2015: Annual Targets

Indicator 2005 2010 2012 2015 % Annual

improvement

GER for pre-primary education (%) 15.4 22.9 26.1 30.6 7.1

Access rate to primary education (%) 75.0 88.0 93.0 100.0 2.9

Completion rate for primary education (%) 55.0 71.0 77.0 88.0 4.8

GER for lower secondary education (%) 38.0 44.0 45.0 51.0 3.0

Gender parity (primary) (girls/boys) 0.81 0.92 0.97 1.00 2.1

Gender parity (secondary) (girls/boys) 0.50 0.66 0.74 0.84 5.3

Source: Team elaboration on the basis of the ESP 2008-2015. (PAD, p. 70).

2. Analysis of implementation efficiency requires an understanding of the funding provided under the Project. As described in the main text, the Pooled/Common Fund (FC-PSE) established by AFD, KfW, and GPE to help finance those activities within the ESP that were most directly related to achieving the education MDGs related to the attainment of UPE by 2015. The amount initially committed to the Pooled Fund was US$160.2 million, of which US$117.8 million (or 74 percent) was to be provided by the Fast Track Initiative (FTI) global program through the Catalytic Fund. The remaining funding was to be provided by AFD (in the amount of Euros 12 million or about 9.5 percent of total funding), and the German Development Cooperation through KfW and GTZ (in an amount of US$27 million or about 17 percent of the total funding). During the period from 2008 (following approval of the Pooled Fund) to 2011, the coup d’etat and subsequent fragility and difficult political environment, GPE and IDA funding was frozen while funding from AFD was able to continue. In 2011, following a decision by the FTI Secretariat the total envelope of funding available for the restructured project was significantly reduced from 117.8 million to 64 million (with the cancellation of US$77.8 million) with the Bank responsible for implementing US$40 million with UNICEF responsible for the remaining US$24 million. During the 2011-2014 period, a number of activities were implemented and achievements observed. Further, the complementary infusion of IDA funding (through the ongoing project) also provided support to the Government in the implementation of its ESP.

50 In order to place the economic and financial analysis in the context in which the Original Program and subsequent restructurings were prepared, the information for this sub-section is drawn from the PAD.

46

Table 2. Financing for the Education Sector (2008-2014)

3. The project was implemented over a period of three years (as it did not become effective until 2011). The majority of project activities were implemented in full (considering the reduced scope introduced under the various restructurings) with disbursements reaching 100 percent by project closing. Under each of the Project restructurings, the activities, indicators and targets were appropriately calibrated to reflect available funding, implementation capacity and available timeframe. With regards to civil works, for example, planned activities were redistributed among different actors who had comparative advantages in specific areas. The Project added to its design a focus on improving human resource management procedures as well as introducing innovative approaches (focused on demand-side interventions) in targeted “prefectures” with low GERs (including among girls) and with the highest poverty rates. The revisions of indicators (outcome and output) and targets were continually reviewed and readjusted. Each of these modifications injected some level of realism in the overall project design. Project management might have been more efficient if responsibilities had been assigned gradually to different entities. Notwithstanding these limitations, implementation progress could be measured for the Project’s three years (2012 - 2014). A large number of outputs were achieved which contributed to maintaining or to improving key outcome indicators of the original project design. 4. Over the life of the Program overall implementation was rated Moderately Unsatisfactory during phase 1, Moderately Satisfactory and Satisfactory during phase 2, and Moderately Satisfactory during phases 3 and 4 (depending on the political context and counterparts’ involvement/financing). During the first phase, project implementation stalled as some activities were suspended due to the political situation (and suspension of GPE and IDA funding) while others were continued with funding from AFD and KfW. During Phase 2, the GPE funding (Pooled Fund) became effective but during this period KfW decided to withdraw its support (one of the reasons for the 2012 restructuring). During this period, project implementation picked up with the full commitment of the Government team and the resumption of the World Bank’s close supervision. In addition, program coordination was streamlined and the RF was reduced accordingly. In the next two phases (phases 3 and 4), implementation momentum gathered. Any construction issues that had been encountered during the second phase were addressed and infrastructure-related safeguards were closely monitored.

Disbursement (2008-2014)

%

GoG (en milliards GNF) 789 1,402 7,379

IDA* EFA Project 38.95 31.80 89.56 100%

EFA-FTI Catalytic Funding Grant/IDA Supervision

40.00 100%

AFD 15.2 100%

KfW **

EFA-FTI Catalytic Funding Grant/UNICEF ***

** KfW withdrew from the Pooled Fund. This resulted in the second project restructuring.

*** Following the first project restructuring, UNICEF received US$24 million and served as Implementing Entity.

Footnotes:

US$ millions

2012 20142013

Pooled Funding--Actual Data

1,5461,3341,181 1,022 1,004

0,00 2.12 3.17 5.57 3.80 0.00 0.54

0,70

Financier2008 2009 2010

0,00

2008-2014 Phase 3 EFA Program--Actual Data

2011

2006-2007 Phase 1 EFA

Program

2002-2005 Phase 1

EFA Program

1,84 2.30

569 723

17.35 9.47 1.33

Period 1 Period 2 Period 3 Period 4

11.85

16.51 0,00

* IDA Financing outside the pooled funding mechanism.

24.00

27.00

Financing through pooled funding for the Guinea: EFA-FTI Project.

Government fiscal year: January 1 to December 31.

47

5. The Pooled Fund and the IDA-funded Project, shared the same implementing unit and arrangements, thereby assuring some level of efficiency and efficacy with implementation. The functioning National Coordination of the Government’s ESP (CN/ESP) which was the central operational coordination unit for the IDA-financed education Project was also responsible for the operational coordination of the ESP and the Pooled Fund. The CN/ESP was also required to serve as the primary management center for the majority of the pooled financing (FC-PSE) including procurement and financial management activities. The detailed guidance on implementation arrangements were articulated in 13 documents. These manuals helped foster a common understanding of project implementation and harmonize efforts.

6. Project interventions bolstered the sector. The school system was augmented with the construction of more classrooms, and the rehabilitation of schools with latrines and water points. The quality of education received a boost with the additional infusion of teaching and learning materials, the strengthening of decentralized management, and learning assessments. The absence of timely data/annual statistics prior to the academic year posed some challenges. But overall, many activities under the quality component contributed to pushing up the quality of education. The first restructuring in 2011 is an example of how strong leadership is a precursor to critical reforms such as personnel management. Additionally, implementation also showed that the use of existing structures instead of setting up parallel implementation units (as was the case in the early years of 2000) helps to reinforce, build and increase critical institutional capacities. Cost-effectiveness Analysis Implementation efficiency 7. Although the majority of the envisioned outputs and outcomes under the restructured design were effectively achieved by the project closing date, the efficiency of implementation was Modest given the initial lag in launching project-supported activities in addition to the need to extend the project closing date three different times in order to provide adequate time to complete activities which were essential for the achievement of the PDO. 8. The FC-PSE financed activities under three components: (i) improving equitable access to basic and non-formal education; (ii) improving quality of basic and non-formal education; and (iii) improving management of the education system. Table 2 provides the allocation by activities. The bulk of the financing (80 percent) of the FC-PSE was earmarked for infrastructure activities (construction and rehabilitation) under the first component, 18 percent for the second component (teacher training, production and distribution of textbooks and instructional materials, and small grants for seriously deteriorated public schools, and the remaining two (2) percent for the third component. The FC-PSE was intended to prepare the ground for a smoother transition into further levels of education by allocating a small fraction of the pooled funds for non-primary education levels. The following table outlines the planned sending (by sub-sector and activity) under the original design and the actual amount spent under the Project (phases 2 – 4).

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Table 3. Activities Planned and Actually Financed by the Pooled/Common Fund (2008-2014), by level of education

Level of education Activities Component

Period 1: Original Program Actual Financing Total to be financed

(2008-2010) (US$ million)

% of total financed by the project

% of total for specific

level

Period 2: First

Restructuring

Period 3: Second

Restructuring

Period 4: Third and Final

Restructuring

Pre-primary Infrastructure Access 2.53 1.57 82.46 0.00 0.00 0.00 Textbooks/Materials Quality 0.17 0.11 5.59 0.00 0.00 0.00 Teacher Training Quality 0.30 0.19 9.74 0.00 0.00 0.00 Supervision Quality 0.01 0.01 0.46 0.00 0.00 0.00 Learning Assessment Quality 0.05 0.03 1.74 0.00 0.00 0.00 Total pre-primary 3.06 1.91 100.00 0.00 0.00 0.00 Primary Infrastructure Access 102.31 63.85 82.0 40.85 33.64 35.59 Textbooks/Materials Quality 7.13 4.45 5.71 9.54 6.43 6.65 Teacher Training Quality 7.66 4.78 6.14 5.74 2.87 2.36 School subsidies Quality 5.54 3.46 4.44 1.66 1.87 2.02 Learning Assessment Quality 0.51 0.32 0.41 0.89 0.40 0.45 Capacity Building Management 1.62 1.01 1.30 1.40 1.08 1.04 Total Primary 124.77 77.87 100.00 60.08 46.29 48.11 Lower Secondary Infrastructure Access 7.30 4.55 79.68 4.60 2.07 0.61 Teacher Training Quality 1.76 1.10 19.19 0.90 0.39 0.55 Learning Assessment Quality 0.10 0.06 1.13 0.10 0.00 0.00 Textbooks/Materials Quality 0.00 0.00 0.00 0.00 0.00 0.36 Total Lower Secondary 9.16 5.72 100.00 5.60 2.46 1.52 Upper Secondary Infrastructure Access 3.89 2.43 59.52 4.43 0.00 0.00 Teacher Training Quality 0.45 0.28 6.85 0.33 0.02 0.02 Textbooks/Materials Quality 2.20 1.37 33.64 2.12 0.00 0.00 Total Upper Secondary 6.53 4.08 100.00 6.89 0.02 0.02 Technical and Vocational Education (TVE)

Infrastructure Access 9.82 6.13 93.70

4.14 0.50 0.50

Capacity Building Quality 0.66 0.41 6.30 0.91 2.05 1.68 Total TVE 10.48 6.54 100.00 5.04 2.55 2.18 Higher Education Capacity Building Quality 0.36 0.22 100.00 0.28 0.08 0.08 Total Higher Education 0.36 0.22 100.00 0.28 0.08 0.08 Adult Education Teacher Training Quality 1.45 0.90 93.31 0.00 0.00 0.00 Learning Assessment Quality 0.10 0.06 6.69 0.00 0.00 0.00 Total Adult Education 1.55 0.97 100.00 0.00 0.00 0.00 General Administration Capacity Building Management 4.31 2.69 100.00 5.39 4.22 4.02 Total General Administration 4.31 2.69 100.00 5.39 4.22 4.02 Total financing by the Common Fund (US$ million) 160.22 83.29 55.62 55.93

Source: Project Appraisal Document, 2008; Project Restructuring Papers; Implementation Status Reports (ISRs).

9. Cost efficiencies are specified for two key components: construction of classrooms and the procurement and delivery of textbooks and described below. 10. Primary school construction. The construction of primary classrooms under the Pooled Fund was relatively cost-effective when analyzed against other relevant comparators. The average cost per classroom built ranged from US$13,104 to US$17, 136 with a large portion of schools constructed under the Project built using the lower cost approaches (see table below). The average cost of a primary classroom in Ghana is estimated to be US$16,65151. In Sudan, the average cost of a primary classroom is estimated to be as high as US$30,00052. By the end of the project, the construction of the 1,644 had been completed using the three different approaches—community-based, NGOs, and through small and medium enterprises. Table 4 which follows provides the comparisons.

51 Ghana Education Sector Project (EdSeP) Implementation Completion Report, 2012. The average cost of a 6-classroom school constructed with EdSeP financing was estimated to be US$99,909. The unit cost a classroom (simple average of $99,909/6) is estimated to be US$16,651. 52 Republic of Congo, Support to Basic Education Project (PRAEBASE), Implementation Completion Report, 2014.

49

Table 4. Guinea: Classroom Unit Costs by Provider

Method of Construction Cost (US$) Pooled Funding Modalities PACV (community based) 13,104 Medium and Small Enterprises (rural) 13,734 Non-Government Organizations (NGOs) 14,490 Medium and Small Enterprises (urban) 17,136 Comparator UNICEF 17,577

Source: Guinea: Public Expenditure Review: Volume 1. June 2015.

11. Textbooks. The Project financed the procurement and delivery of textbooks at an average unit cost ranging from US$0.65 and US$1.4 for primary school core subjects. The unit cost is in line with other projects implemented during the same time period in the Ivory Coast, Niger and Burundi where primary school textbooks were acquired for unit costs ranging between US$1.1 and US$1.4. The procurement of textbooks was successfully completed and the contracts were signed with savings of GNF 3 million (about US$399). This helped with the procurement of additional textbooks. Efficiency gains (or savings) were realized due to lower unit costs as a result of the volume of textbooks that were procured and also due to gains in the exchange rate differential between the US dollar and the GNF making it possible to procure a larger than estimated number of textbooks. At project closing, more than seven million had been delivered. The reported quantities, contract values, and computed unit price of textbooks purchased under the Project are shown in Table 4 below. 12. Support to girls’ education. Through the FIERE initiative under this Project, around 9,000 girls received support from 2011 to 2013. The Pooled Fund provided US$260,600 to finance this support amounting to approximately US$28.90 per participant, which is a reasonable cost given the evidence pointing to the positive association between girls’ participation in education and other development outcomes (i.e., health, employment, etc.) Benefit Incidence 13. The analysis of the project benefits takes into account both individuals (private benefits) and society at large (social benefits). According to the final ISR Project investments supported an estimated 1.87 million direct beneficiaries. This was slightly over the third and final restructuring revised target of 1.82 million, which was slightly above the second restructuring of 1.73 million. Beneficiaries comprised school students and graduates at primary education level, teachers, school administrators, and decentralized and centralized ministerial administrators. This had a spillover benefit at secondary education level both with respect to intake rate and graduation rate. The future for the project primary is promising. A detailed age-earnings profile for Guinea is presented in the PAD. Project interventions also helped to improve the quality of primary education in terms of improving the educational environment with additional classrooms reducing crowding, improved sanitation facilities with the rehabilitation of schools to include latrines and water points, and a more conducive learning environment in the classroom with textbooks and trained teachers. Without the project, fewer primary school students would have graduated, and few teachers would have benefited from pre- and in-service training.

14. The cumulative effects of the project inputs over time show positive social benefits for society at large. Due to the Project longer-term health benefits are anticipated for those with literacy and numeracy. Better health outcomes means lower duration of unemployment spells, a higher degree of civil participation, a decrease in the crime statistics, and others. The health index for women with primary education compared to those without is significant: a 19 percent reduction in problems related to pregnancy, including the usage

50

of contraceptive methods. Completing primary schooling and moving to secondary education extends the health improvements a little further for women by about four percentage points. Project benefits accrued in the domain of institutional development as well. Management, financial and procurement systems were strengthened through capacity development and experience accrued through learning-by-doing. Individual and group learning was fostered through collective action and commitment to goals and objectives.

Table 5: Benefits of the Pooled Funding (2008-2014) for Individuals

Main expected outcomes of the

Project 2008 2009 2010 2011 2012 2013

2014 Actual

Total

Direct project beneficiaries

1,584,282 1,727,700 1,729,670 1,870,408 1,870,408

Increase in graduates from primary education

(Percentage) Access rate in first grade (total/girls)

77% 82.4%

(77.7%) (2009)

84% (80%)

85% (80%)

85.5% (80.4%)

85.5% (80.4%)

(Percentage) GER primary (girls)

79% 78.3%

(70.2%) 49.6%

(45.7%) 53.0%

(47.8%) 57.0%

(53.0%) 57.0%

(53.0%)

14. In light of the information provided above, efficiency during each of the project phases is rated Modest.

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Annex 4. Grant Preparation and Implementation Support/Supervision Processes

(a) Task Team members

Names Title Unit Responsibility/

Specialty Lending/Grant Preparation

Supervision/ICR Norosoa Andrianaivo Senior Program Assistant GHNDR Operations Alpha Mamoudou Bah Senior Procurement Specialist GGODR Procurement Bella Lelouma Diallo Sr Financial Management Special GGODR FM Thierno Hamidou Diallo Disbursement Asst. AFMGN FM Michael Drabble Senior Education Specialist GEDDR Education Salimatou Drame-Bah Program Assistant AFMGN Operations Daniele A-G. P. Jaekel Operations Officer GHNDR Operations Mamady Koulibaly Economist AFTP4 - HIS Economics Kolie Ousmane Maurice Megnan Sr Financial Management Specialist GGODR FM Tshela Rose-Claire Pakabomba Program Assistant GEDDR Operations Marietou Toure Diack Senior Human Resources Assistant HRDEX Human Resources Nathalie Lahire TTL and Senior Economist GEDDR Education Shobhana Sosale Senior Operations Officer GEDDR Education Laura McDonald ET Consultant GEDDR Operations Bernardo da Cruz Vasconcellos Consultant GEDDR Operations

(b) Staff Time and Cost

Stage of Project Cycle Staff Time and Cost (Bank Budget Only)

No. of staff weeks USD Thousands (including travel and consultant costs)

Lending

Total: 0.00 Supervision/ICR

Total: 9.16 46712.21 *Lending and additional supervision costs were paid for by separate TFs

52

Annex 5. Beneficiary Survey Results Not Applicable.

53

Annex 6. Stakeholder Workshop Report and Results Not Applicable.

54

Annex 7. Summary of Grantee's ICR and/or Comments on Draft ICR RAPPORT D’ACHEVEMENT DU PROGRAMME SECTORIEL DE L’ÉDUCATION (FC-PSE) (version allégée) Le Gouvernement Guinéen a entamé en 2008, avec l’appui de ses partenaires au développement, la mise en œuvre d’un programme sectoriel d’éducation, dont la vision s’inscrit dans le cadre des Objectifs du Millénaire pour le Développement (OMD), de l’Éducation Pour Tous (EPT) et la Stratégie de Réduction de la Pauvreté (SRP). L'Accord de don du Fonds Catalytique (FTI) date de 2008. Le versement des fonds dépendait à partir de cette date de conditions suspensives qui n'ont pu être remplies qu'à la fin de l'année. La création du Fonds Commun nécessitait la ratification du cadre partenarial par l’Assemblée Nationale guinéenne après avis de la Cour Suprême. La mise en place de ce cadre de partenariat illustré par la lettre d’entente a entraîné des démarches longues et lourdes. Les conditions suspensives ont été levées au moment du coup d'Etat militaire de décembre 2008 qui a entraîné le gel des opérations de la Banque Mondiale sur les projets en cours. Par ailleurs, en octobre 2009, toutes les opérations de la Banque ont été suspendues en raison de retards supérieurs à 60 jours dans le remboursement de dettes à son égard. En novembre 2009, le Comité du Fonds Catalytique, constatant ces retards, a demandé aux PTF de lui transmettre une proposition de restructuration, fondée sur un réexamen des capacités d'exécution du pays. Ainsi, en 2010, un plan restructuré a été soumis au comité du Fonds Catalytique dont le montant est passé de 117,8 millions de dollars à 64 millions. Sur ce montant, 24 millions de dollars ont été confiés à l’UNICEF comme opérateur. Après la restructuration du programme, la KFW s’est retirée du fonds commun pour des raisons de non tenue d’élections législatives. Cette restructuration a passé en revue chacune des activités du PSE initial et a retenu les décisions ci-dessous:

- reporter à des plans ultérieurs toutes les activités pour lesquelles la procédure d'exécution n'était pas encore clairement identifiée (par exemple, l'entretien courant des bâtiments scolaires pour 1 % de leur coût de construction, les classes inclusives, les centres d'insertion professionnelle….);

- réduire les quantités des intrants nécessaires aux activités en les ajustant aux capacités effectives d'exécution. C'est le cas essentiellement des constructions de salles de classe du primaire, mais aussi d’autres activités connexes ;

- revoir la ventilation initiale de la maîtrise d'ouvrage du génie civil entre les différents opérateurs (ONG, PME, Communautés) conformément aux objectifs quantitatifs retenus.

C’est dans ce contexte que le PSE a été mis en œuvre pour la période 2008-2012, puis prorogé jusqu’en Décembre 2014 pour le temps nécessaire à l’achèvement des constructions scolaires.

I- OBJECTIFS ET COMPOSANTES

Objectif général : L’objectif du programme est (i) d’améliorer l’accès équitable à l’éducation de base, (ii) d’améliorer la qualité de l’éducation de base et (iii) de renforcer la gestion décentralisée du système éducatif.

55

Composantes du programme : Composante 1 : ACCES. Les objectifs de la composante étaient (i) d’accroître les taux d’inscription aux niveaux de l’enseignement préscolaire, primaire et du premier cycle de l'enseignement secondaire et à soutenir des mesures spécifiques pour les filles; (ii) de favoriser l’accès à l’éducation des enfants porteurs de handicaps en vue d’atteindre les objectifs du millénaire pour le développement (iii) de contribuer à l’atteinte de la scolarisation primaire universelle de qualité à l’horizon 2015 à travers la construction/réhabilitation d’infrastructures permettant l’augmentation du TBS au primaire, la réduction de la taille des groupes pédagogiques au secondaire et la création de filières de formation courte d’insertion professionnelle; (iv) de réduire le taux d’analphabétisme au sein de la population adulte, notamment chez les femmes. Composante 2 : QUALITE. L’objectif de ce volet est d’améliorer la qualité et la pertinence de l’enseignement fondamental et non formel, en portant une attention particulière à l’acquisition de matériel pédagogique, à la formation initiale et continue des enseignants, et à l’attribution de subventions globales aux Délégation scolaire de l’enseignement élémentaire (DSEE)(PAD 2008). Composante 3 : GESTION. Les objectifs de la composante étaient : (i) d’améliorer les capacités de mobilisation, de programmation, d’allocation et de gestion des ressources à travers le développement de procédures de gestion et la formation du personnel administratif, l’équipement des structures et le suivi de la mise en œuvre des plans et programmes ; (ii) de mettre en place, dans le cadre de la préparation du PSE, un système de suivi et évaluation opérationnel et fiable par le gouvernement et les partenaires. Ce système intègre le dispositif de collecte de données statistiques existant afin d’assurer une meilleure fiabilité des informations sur le secteur, et comporte un manuel de référence pour le suivi évaluation, des outils de collecte de données et un cadre de concertation (commission nationale de suivi et évaluation).

II- REALISATIONS PAR COMPOSANTE Composante 1 : ACCES La mise en œuvre des différentes actions de la composante accès et équité du programme sectoriel de l’éducation (2008-2014) a permis d’obtenir les résultats suivants: Pour le primaire : Sur 3000 salles de classe prévues par le FC-PSE, 2791 sont achevées (93,03% de réalisation) et les résultats obtenus par approche de construction se présentent comme suit : 1164 salles de classes par l’approche PME; 195 SDC par l’approche ONG ; 441 SDC par le PACV ; 991 SDC avec UNICEF comme operateur et Plan Guinée comme sous-traitant. Pour le 1er cycle du secondaire : Dans le cadre du FC-PSE et après les études, un appel d’offres d’entreprises a été lancé en janvier 2013, à l’issue duquel les procédures ont été suspendues à cause du montant élevé des offres par rapport au budget. Finalement, le montant destiné à cette action a été réorienté vers la formation continue des enseignants du secondaire 1 et l’acquisition de manuels de français pour la 10ème A. Composante 2 : QUALITE Manuels scolaires : La réalisation des activités a permis d’acquérir et de distribuer 6 695 080 manuels scolaires du primaire dans les disciplines (Calcul de la 1ère à la 5ème , Français de la 1ère à la 6ème, Sciences d’observation de la 1ère à la 6ème , Instruction Civique et morale de la 3ème à la 6ème , d’Histoire- Géographie de la 3ème à la 6ème , Kits scolaires, Dictionnaires de langue française. Pour le collège, il a été acquis et distribué des manuels scolaires de Français pour la 10ème A.

56

Formation initiale des enseignants : Education préscolaire : (i) 84 Programmes Intégré Standard de la Petite Enfance (PISPE) ; 3.360 cahiers de graphisme ; 84 guide pédagogique du PISPE, 3.360 Cahiers d'évaluation et 2188 Boites à images ont été produits et distribués aux apprenants et encadreurs des CEC construits dans le cadre du programme ; (ii) 2 kits de matériels ludiques ont été produits localement et remis aux CEC ; (iii) 90 éducatrices/teurs des 30 CEC construits sur 120, 20 animatrices d’écoles maternelles publiques, 18 superviseurs/inspectrices du Préscolaire et 24 DSEE ont été formés par les cadres de la DNEPPE et le cabinet ID2S ; (iv) deux missions conjointes d'encadrement rapproché des éducateurs/rices des 30 CEC ont été effectuées. Au cours de ces missions, l'opérationnalisation effective de 27 sur 30 CEC visités a été confirmée, avec 2.778 enfants (1,359 filles) bénéficiant d’un encadrement ; (v) définition des spécifications des matériels des aires de jeux; (vi) mise en place Cadre de Concertation (Groupe Thématique) du Préscolaire ; (vii) évaluation des apprentissages et des enseignements. Formation Initiale des maîtres de l’élémentaire: suite au retrait de la KFW du FC, seule la première activité a été réalisée. Il s’agit du partenariat institutionnel d’accompagnement du CEPC international de Lyon qui visait à accompagner les Écoles Normales d’Instituteurs (ENI) en vue d’une amélioration de la qualité de la formation initiale des enseignants. Réforme de la formation initiale des enseignants du secondaire: des modules de formation ont été élaborés, validés et reproduits. Des mallettes pédagogiques ont été acquises et distribuées aux élèves-professeurs et 80 APES formateurs d’enseignants du secondaire ont été préparés. Il faut souligner que le projet de recrutement de diplômés d’universités (ceux ayant achevé au moins 3 années d’étude) pour une formation académique et professionnelle d’un an, suivi d’un stage pratique pour en faire des professeurs de collège n’a pas abouti. Dans la même dynamique, la deuxième école de formation n’a pas été mise en place pour une formation des professeurs polyvalents de collège. La principale raison est un problème institutionnel lié au statut des sortants (reclassement à quelle hiérarchie de la fonction publique?).

Composante 3 : GESTION Le secteur de l’éducation a bénéficié de nombreuses interventions du Gouvernement et des bailleurs de fonds visant à renforcer les capacités de gestion de l’éducation dans les domaines de la gestion des ressources matérielles et financières, de la gestion des ressources humaines et du suivi et évaluation. Grâce à ces interventions, la qualité des statistiques s’est améliorée mais leur exploitation dans la prise de décision est à renforcer. Il en est de même qu’en matière de renforcement de la stratégie de gestion des ressources humaines. Par contre, les progrès enregistrés dans la gestion des ressources matérielles et financières tant au niveau central que déconcentré restent mitigés notamment la lenteur dans la mise en œuvre effective de la déconcentration budgétaire. Gestion des ressources humaines matérielles et financières : 21 membres de l’équipe CDMT se sont appropriés de la méthode de programmation et

budgétisation selon l’approche CDMT ; Les cadres de la cellule CDMT ont été formés en Access et Excel avancé ; 290 assistants gestionnaires de ressources des services centraux et déconcentrés du système

éducatif ont été formés sur les procédures de préparation et d’exécution du budget de l’Etat ; Les cadres du SNIES et de ses Antennes et du SNIEM ont bénéficié de session de formation en

logiciels de dessin assisté par ordinateur ; Un manuel de procédures de gestion budgétaire et un Document de base des PAE ont été élaborés

et diffusés ; Les membres de l’équipe CDMT ont été dotés en matériels et équipements informatiques ;

57

La préparation, la mise en œuvre et le suivi des PAAB au niveau des IRE et DPE/DCE, ainsi que des PAE et des plans de formation des DSEE ont été effectifs. Au total, le programme a déboursé 4 601 547 195 GNF pour l’appui au fonctionnement des IRE et DPE/DCE et 12 078 777 173 GNF au titre des subventions aux écoles et aux DSEE sur la période 2012-2013. En raison du gel du financement du PSE, l’UNICEF en tant qu’Opérateur du programme a payé entre 2010 et 2011 les subventions des DSEE et Ecoles pour les montants de 3 262 688 000 et 6 303 657 955 GNF respectivement ;

Le SNIES et ses Antennes régionales ont été dotés en matériel et équipement ; Les gestionnaires de ressources au niveau déconcentré ont été formés sur un logiciel de gestion et

de calcul automatisé des indicateurs des PAAB conçu à cet effet ; Les subventions destinées au fonctionnement des structures déconcentrées (IRE, DPE/DCE, DSEE

et Ecoles) ont été octroyées ; Des assistants gestionnaires (AG) ont été nommés pour appuyer les chefs de services centraux -

administrateurs de crédits dans la préparation, l’exécution de leurs crédits sur le BND. Avec l’expertise des cadres du service informatique du Ministère chargé du budget, ces AG nommés au niveau central ont été formés à l’utilisation du logiciel de gestion de la chaîne des dépenses ;

Le recrutement de spécialistes pour appuyer les services en charge de la programmation budgétaire, de la statistique et des infrastructures est effectué;

Dans le cadre de l'amélioration de la gestion des ressources humaines dans le secteur de l’éducation, des équipements informatiques et bureautiques ont acquis en faveur de la Division des ressources humaines.

Suivi-évaluation et de la production de statistiques: (i) des bases de données et annuaires statistiques du secteur ont été mises à jour annuellement; (ii) des indicateurs de résultats et des rapports d’analyses ainsi que des tableaux de bord du système ont été régulièrement produits; (iii) des plans de renforcement de capacités des acteurs ont été élaborés et exécutés.

III- ANALYSE DES RESULTATS

Composante 1 : ACCES Efficacité : Les objectifs quantitatifs ont été atteints. En dépit de cette performance, les délais, la qualité et les coûts ont été en deçà des attentes. A titre illustratif, 99 salles de classe prévues dans un cadre expérimental pour un délai de 6 mois n’ont été achevées qu’en 33 mois. La tranche principale des constructions sur FC/PSE (1062 salles de classe) n’ont été réalisées qu’en 24 mois environ (de Février 2012 et Décembre 2013) au lieu des 6 mois contractuels. Le non-respect des délais concerne également l’approche ONG et PACV où il a été enregistré des retards de plus de 12 mois par rapport au délai contractuel. Le volet UNICEF opérateur du FC/PSE a connu la même situation de dépassement des délais impartis. De surcroit, des cas de défaillances techniques (implantation, stabilité, et finition des bâtiments et ouvrages connexes) ont été nombreuses, entrainant quelques fois des démolitions et des reprises voire des résiliations de certains contrats, notamment pour l’approche PME. Ce qui a eu pour effets l’aggravation des retards et le rehaussement des coûts des prestations (supervision et travaux). Des avenants ont été fréquents et relativement couteux. Une réduction du nombre de classes à construire en a découlée, notamment au niveau de l’approche PME et le volet UNICEF. Plusieurs facteurs ont contribué au retard et au surcoût dans l’exécution des chantiers: La lenteur dans l’application des procédures d’approbation et de légalisation des contrats ;

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La succession logique des opérations prévues sur les plans d’action et autres plannings n’a pas été respectée;

La mobilisation tardive du dispositif de supervision (Superviseurs, BET-Zone et BIIC) a entrainé par exemple le fait que les entreprises ont été chargées d’adapter elles-mêmes les plans des infrastructures aux terrains;

Plusieurs prestataires n’ont pas respecté les cahiers de charges relatives aux qualifications requises de leurs personnels de chantier ;

La non prise en compte de la dispersion et de l’accessibilité des sites en termes de cout et de délai, Les changements fréquents de sites après signature des contrats ont entrainé des charges

supplémentaires et des retards Pertinence : Les projets de construction d’infrastructures scolaires concourant à l’accroissement des capacités d’accueil et par ricochet à l’amélioration de l’accès sont en parfaite adéquation avec les objectifs du secteur. Les stratégies de mise en œuvre de ces projets à travers le recours aux différentes approches (PME, ONG, PACV) répondent aux besoins de renforcement des capacités endogènes et à la lutte contre la pauvreté. En effet, environ 75 % du financement du FC/PSE ont été alloué au volet infrastructures et équipements scolaires. Cette proportion est aussi valable pour la plupart des projets. L’objectif et le moyen idoine de tout développement étant la décentralisation, la délégation de la maitrise d’ouvrage aux ONG (plus proches des communautés) et aux communautés elles-mêmes par l’entremise du PACV, était pertinente de ce point de vue. En termes d’équité et conformément aux objectifs des DSRP, les constructions scolaires ont été réalisées prioritairement dans les zones rurales défavorisées et dans les préfectures à faible taux de scolarisation et à taux élevé de pauvreté. Le renforcement des capacités des parties prenantes (les services pérennes, les entreprises et les ONG) constitue un acquis du programme et pour les actions futures, à travers les formations d’une part et l’acquisition d’équipements et de moyens logistiques pour le niveau central et les antennes régionales d’autre part. Face à l’ampleur des travaux, la mobilisation des bureaux d’études techniques (BET) pour le suivi rapproché et d’un bureau international d’ingénierie et de contrôle (BIIC) au niveau central était justifiée pour compenser les insuffisances liées au plan de charges des services pérennes. Aussi, la délégation de maitrise d’ouvrage à L’UNICEF, ainsi que l’implication de Plan Guinée au processus de mise en œuvre du volet infrastructures du FC/PSE se sont-elles avérées concluantes pour les mêmes raisons. Viabilité : De manière générale, la qualité des infrastructures respecte les normes ; ce qui favorise leur durabilité sous réserve que l’entretien et la maintenance soient réguliers. En outre, l’insertion des latrines et des points d’eau dans les établissements construits améliore le cadre d’apprentissage des élèves en général et favorise la scolarisation et la rétention des filles en particulier. L’entretien de ces infrastructures est à la portée des bénéficiaires. Cependant, force est de reconnaitre que des manquements par rapport au respect des cahiers de charges ont été observés dans l’exécution de certains ouvrages qui risquent d’entacher la durabilité par endroit. Par ailleurs, la disponibilité d’une documentation fournie et accessible (Plans, pièces techniques, manuels et guides divers) est un acquis pour le secteur dans le domaine de la réalisation des infrastructures. L’exécution du projet a été confrontée à plusieurs difficultés qui n’avaient pas été envisagées au moment de la conception et de la planification. Les augmentations fréquentes et imprévisibles des prix des matériaux et matériels essentiels que le plafonnement des soumissions ne prévoyait pas a entrainé la lenteur voire l’arrêt de certains chantiers. Il en a résulté la résiliation de contrats et la reprise des travaux par d’autres entreprises moyennant une majoration des montants initiaux.

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L’identification et l’allotissement des sites effectués 3 ans au préalable n’ont pas été actualisés avant le lancement des appels d’offres en raison du manque de financement des missions de confirmation des sites pourtant indispensables pour la rationalisation des lots et l’adaptation des plans aux terrains. Ce qui a engendré la dispersion des sites de certains lots et le changement fréquent d’autres sites ayant bénéficié entretemps de l’implantation d’infrastructures et contribuant ainsi aux retards enregistrés et à l’augmentation des coûts. L’inaccessibilité de bon nombre de sites, notamment en saison pluvieuse a occasionné des difficultés d’approvisionnement des chantiers à cause des coûts du transport plus élevé et même, le refus des transporteurs à exposer leurs véhicules aux risques des mauvaises pistes. Des arrêts fréquents de ce fait, entrainent la désertion des personnels de chantier ou leur démobilisation volontaire par l’entrepreneur. Le choix des moins-disants dans l’évaluation des offres d’entreprises sans tenir compte de la structure des prix aboutissant des fois à la sélection d’entreprises qui ont sous-estimé les coûts et ne pouvant pas achever les travaux, appelle la révision de la procédure d’évaluation des offres financières. Les expériences vécues et les leçons tirées de la mise en œuvre du volet infrastructure amènent à faire des recommandations suivantes dont la prise en compte permettra l’atteinte des objectifs visés dans le respect de la qualité, des délais et des coûts :

Respecter les procédures visant l’identification et l’allotissement, le cas échéant, la confirmation des sites à prendre en compte dans les DAO ;

Mettre en place le dispositif d’études et de suivi-évaluation avant les appels d’offres ; Analyser en détail la structure des prix, pas seulement les montants des offres (cf. bordereaux inclus

dans les DAO) à l’évaluation des offres ; Veiller au respect strict des cahiers de charges et des clauses de contrats ; Prendre en compte les recommandations pertinentes de l’étude sur les approches de construction

d’infrastructures scolaires.

Composante 2 : QUALITE Manuels scolaires : Pertinence : En raison de l’importance reconnue des manuels dans la réussite scolaire, les objectifs fixés visent à maintenir les quotas du primaire et du premier cycle du secondaire et d'atteindre un niveau susceptible de contribuer à l’amélioration de la qualité des enseignements apprentissages. Si au niveau quantitatif l’acquisition des manuels et leur distribution gratuite ont permis l’atteinte des quotas prévus au primaire, l’impact dans la salle de classe n’est pas encore très évident comme le montrent les résultats de l’évaluation des apprentissages en lecture et en calcul des élèves de CE2 (rapport CNCESE 2013) et l’évaluation précoce des apprentissages de la lecture dans les premières années du primaire - EGRA (rapport bureau d’études School to school 2013). Efficacité : Les résultats obtenus ont permis d’atteindre les objectifs initialement fixés, voire même les dépasser par endroit en termes de ratios manuels/élève (cinq manuels par élève du CE1 au CM1). L’acquisition d’un cinquième titre au primaire (instruction civique et morale) a été rendue possible grâce aux économies réalisées sur la commande des quatre premiers titres. Viabilité : Des campagnes de sensibilisation des communautés sur la nécessité d’utiliser les manuels avec grand soin ont été menées et leur estampillage pour une meilleure sécurisation a été effectué au niveau des structures déconcentrées et des établissements scolaires. Ce qui a permis d’assurer la sécurisation des manuels distribués aux élèves. Pour contribuer à la qualification des enseignements apprentissages, des efforts conjugués pour la possession et utilisation effective du manuel par l’élève, sa conservation et sa sécurisation par rapport à l’agressivité du marché illicite de manuels doivent être soutenus à travers la poursuite des campagnes de sensibilisation des acteurs et partenaires, la disponibilité de statistiques fiables notamment sur les effectifs, le renouvèlement des manuels usés et des acquisitions nouvelles.

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Pour mieux sécuriser les manuels scolaires distribués dans les écoles publiques et apporter une contribution à l’amélioration de la qualité pour tous les élèves, tous statuts confondus, il y a lieu de prévoir établissements privés dans les futurs commandés de livres scolaires. Il en est de même des institutions de formation initiale afin de familiariser les futurs maîtres à leur utilisation : reconduire pour le prochain PSE la commande de manuels du Lycée avec réactualisation du nombre de manuels en fonction des nouveaux effectifs, et compléter les titres et le nombre de manuels pour les élèves du collège publics et privés. Formation initiale des enseignants : Education préscolaire : En ce qui concerne la Pertinence des interventions, bien que, l’objectif d’aller à 30 % d’ici 2015 parait lointain, le taux brut de préscolarisation a connu une augmentation sensible allant de 6, 10% en 2007 à 10, 7% en 2012. Aussi les enfants encadrés au nombre de2776 de 3 à 6 ans, sont issus des familles pauvres très marginalisées avec un nombre de jeune fille qui avoisine la moyenne. Ce résultat serait un peu plus significatif si le nombre de CEC initialement prévu avait été réalisé avec 3 salles d’activités au lieu de 2. En matière de Viabilité, le CEC, est un type préscolaire reposant essentiellement sur une participation communautaire. Dans notre cas, les communautés ont bel et bien accueilli cette initiative, cependant elles n’ont pas bénéficié de mesures d’accompagnement par des subventions publiques nécessaires pour combler la pénurie des ressources. Pour pérenniser l’expérience du CEC, certaines mesures méritent d’être prises notamment: (i) le renforcement des capacités de mobilisation et de gestion des ressources par les communautés au bénéfice des CEC, (ii) la construction des infrastructures et leurs équipements dans toutes les communautés villageoises et urbaines à faible revenu et (iii) la formation et l’affectation aux CEC du personnel d’encadrement de qualité et en nombre suffisant. Recommandations : (i) le choix judicieux PME et des ONG chargés des travaux de construction des CEC, (ii) la dynamisation des actions /programmes d’éducation parentale et d’appui aux AGR pour mieux promouvoir l’implication des familles et communautés, (iii) fournir des subventions aux communautés bénéficiaires pour soutenir les CEC. Formation initiale des enseignants - Formation Initiale des maîtres de l’élémentaire : Force est de reconnaitre qu’en terme de qualité et de pertinence l’accompagnement institutionnel du CEPEC international de Lyon a marqué une réelle évolution des ENI vers l’amélioration de la formation initiale des Enseignants à travers l’établissement d’un diagnostic participatif précis mais aussi et surtout la disponibilité de différents outils et méthodologies utiles pour les ENI en vue d’une formation professionnalisante. Désormais il est question de réussir leur mise en œuvre qui devrait s’appuyer sur les compétences des divers acteurs. A cet égard, des actions futures, pouvant favoriser une pérennisation dans la mise en œuvre du nouveau dispositif, ont été identifiées à l’effet de qualifier la formation de l’élève-maître à l’ENI et l’enseignement-apprentissage des élèves du primaire, entre autres :

la formation des divers acteurs dans les principales didactiques et aux différentes méthodologies indispensables à la mise en œuvre des outils ;

l’organisation de missions de suivi et de supervision de terrain pour l’implantation des référentiels et des divers outils ;

la mise à disposition de la logistique nécessaire au suivi régulier de la mise en œuvre du modèle réajusté (moyens roulants et fournitures) ;

organisation des sessions de formation et d’instrumentation sur le nouveau dispositif à l’intention des partenaires (DNEE, IRE, DPE, DSEE, DEA, MA) pour leur participation de qualité dans l’encadrement des élèves-maîtres ;

relance du trimestriel pédagogique « MA CLASSE » comme espace d’échange et moyen de documentation et de vulgarisation du modèle d’une part et d’autre part support pédagogique pour les élèves-maîtres en stage.

mise en place des projets d’établissement et contrat de performance ; initiation des gestionnaires et formateurs des ENI à la recherche pédagogique

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o la poursuite du partenariat institutionnel et la mise en place d’un système de suivi des ENI sur une année d’ENI qui aurait pour fonction de (i) superviser l’implantation du référentiel dans les ENI pour une première promotion avec l’accompagnement du CEPEC international et de (ii) porter un regard extérieur tout en aidant à la mise en place du modèle rénové de formation initiale dans les ENI.

Malgré les mesures incitatives introduites par l’octroi de bourses, on a constaté une baisse du nombre des candidatures de bacheliers pour les ENI, 929 en 2013 contre 2308 candidats l’année précédente. Cette chute serait due aux effets pervers du concours de recrutement à la Fonction Publique ouverts aux personnes n’ayant pas fréquenté les ENI et aux échecs massifs des diplômés des ENI au dit concours. Pour corriger ce dysfonctionnement, il convient de développer des modalités de couplage des évaluations certificatives des ENI et de l’ISSEG avec le concours de recrutement de la Fonction Publique. Réforme de la formation initiale des enseignants du secondaire : le projet de recrutement de diplômés d’universités (ceux ayant achevé au moins 3 années d’étude) pour une formation académique et professionnelle d’un an, suivi d’un stage pratique pour en faire des professeurs de collège n’a pas abouti. Dans la même dynamique, la deuxième école de formation n’a pas été mise en place pour une formation des professeurs polyvalents de collège. La principale raison est un problème institutionnel lié au statut des sortants (reclassement à quelle hiérarchie de la fonction publique?). Formation initiale des formateurs du technique & professionnel (VOLET FORMINE) : La formation des formateurs est une préoccupation majeure du système de formation professionnelle et technique qui fait face à un problème récurrent de personnel dont le nombre est insuffisant et surtout vieillissant. Une bonne frange du personnel existant a besoin d’une remise à niveau technologique. Ce qui dénote suffisamment de la Pertinence de la relance de la formation des formateurs au niveau de l’ENPETP. Le projet FORMINE qui appuie cette initiative permet de réactiver la formation initiale des formateurs à l’ENPETP et au CFP de Matoto. Il s’agit de mettre à niveau les programmes et les enseignants, et de rénover l’approche et les outils pédagogiques aussi bien à l’ENPETP (site de la formation pour la première année) qu’au CFP de Matoto (site pour l’année de formation technologique et pratique dispensée en stage). Les résultats obtenus sont entre autres : La rénovation pédagogique de la filière de chaudronnerie du CFP de Matoto; L’organisation de voyage d’étude à l’AFPA pour 2 formateurs de la filière chaudronnerie : La fourniture d’équipement informatique et l’installation de la connexion WiFi du centre de

ressources de l’ENPETP; La fourniture d’ouvrages pédagogiques et techniques à l’ENPETP L’organisation d’un voyage d’études en Tunisie pour des gestionnaires pédagogiques de l’ENPETP

ayant abouti à une convention de partenariat; La formation des formateurs en :

o Didactique professionnelle o Pédagogie de la médiation o Pédagogie active

La Pérennisation de ces acquis appelle à renforcer les actions menées et à poursuivre dans une dynamique complémentarité et de couvertures de tous les volets prenant en compte : (i) l’implantation de nouveaux programmes porteurs selon l’APC; (ii) une plus grande implication des grandes entreprises et autres partenaires; (iii) la dynamisation du Partenariat Public Privé.

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Alphabétisation et de l’éducation non formelle : Ce volet restructuré (financement FTI/UNICEF/PSE de 2008 à 2013) a visé 25000 personnes de différentes catégories socioprofessionnelles pour une durée de 9 mois d’alphabétisation. Ce volet mis en œuvre de 2011 à 2012 selon l’approche ‘’Faire-Faire’’, a couvert 16 Préfectures où le taux brut de scolarisation et d’alphabétisation sont les plus bas et constituent des poches de pauvreté. Les évaluations ont démontré des résultats positifs de 27929 alphabétisés sur 25000 apprenants prévus pour un taux de réussite de 85,5%. Pour atteindre cet objectif, des activités de formation, de production de matériel didactique, de supervision et d’évaluation ont été mises en œuvre. L’analyse de ces résultats fait ressortir des points forts et des points faibles, des leçons apprises qui permettent de formuler des recommandations pour le prochain PSE. En termes de Pertinence, ce sont les préfectures les plus nécessiteuses qui ont été couvertes en priorité. Malgré les bons résultats obtenus au niveau de ces cibles, il est nécessaire d’élargir l’intervention aux autres préfectures. S’agissant de l’Efficacité, ce volet a atteint voire dépasser ses objectifs de 112%. Pour une prévision de 25 000 apprenants, 27 929 apprenants ont été alphabétisés. Sur cet effectif, on dénombre : 18 042 femmes de 25 ans et plus (72%), 2 704 jeunes de 15 à 25 ans des CAP (11%), 2 594 élus locaux et APEAE (10%), 2 375 membres de comités de gestion(9,5%) et 2 214 d’autres catégories socioprofessionnelles (9%). Cela dénote la diversité des cibles visées même si la prise en compte de certaines a été de faible proportion. Pour atteindre ces résultats, 76 superviseurs et 640 alphabétiseurs ont été formés, certifiés et déployés dans les centres sur la base d’un superviseur pour 5 à 10 centres d’alphabétisation. Cette approche d’encadrement est à améliorer pour un rapprochement des superviseurs des centres et une meilleure définition de mécanisme de certification et de reconnaissance des acquis. Par ailleurs, 85% des bénéficiaires utilisent couramment des compétences en lecture-écriture et calcul, 13% appliquent des compétences en santé-hygiène et 5% suivent les apprentissages des enfants à l’école. Outre ces compétences instrumentales de base (Lecture, écriture et calcul) sur le plan personnel, 34,4% des bénéficiaires affirment utiliser des compétences dans la vie courante et 38,3% attestent que cette formation leur a permis de changer leur comportement dans la vie en société. La stratégie ‘’faire faire’’ utilisée dans la mise en œuvre du volet a permis d’atteindre ces objectifs. Deux ONG recrutées pour l’encadrement de 595 centres d’alphabétisation ont mené des activités de sensibilisation, d’information et d’accompagnement des communautés. Concernant la viabilité, l’utilisation des ONG pour l’exécution des activités sur le terrain à travers la stratégie « faire faire » a permis d’être plus proche des communautés bénéficiaires et de mieux les accompagner dans l’appropriation du projet. Cela se démontre dans l’appui organisationnel et la capitalisation des acquis au niveau communautaire. Chez les apprenants, des cotisations volontaires ont été instaurées dans certains centres et aussi des pénalités de retard et d’absence des apprenants ont été instituées par endroit pour remplir les caisses des COGES. Tout ceci a été ajouté aux ressources provenant des AGR53 initiées par les communautés pour la prise en charge des frais d’entretien des centres d’alphabétisation, l’achat de lampes et des boîtes de craie.

53 Les missions de suivi ont enregistré plus de douze millions (12 000 000 FG) de francs guinéens issus des AGR.

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Par ailleurs, la disponibilité d’un personnel de supervision et d’animation certifié permet la poursuite et le renforcement du prochain PSE ainsi que la valorisation des meilleures pratiques. Au niveau des collectivités, la reconnaissance des communautés pour les services rendus par certains néo-alphabètes dans la vie des populations. L’utilisation de plusieurs néo-alphabètes à titre de personnes-ressources dans la mise en œuvre de certaines activités communautaires (tenue des registres de micro finances pour certaines institutions de crédits, appui organisationnel pour les groupements féminins, respect de l’hygiène du milieu et des aliments); la tenue de la petite comptabilité des groupements féminins qui encadrent les centres d’alphabétisation par des apprenants sont autant d’éléments de pérennisation du projet. Les AGR ont été développées par l’initiative des groupements féminins bénéficiaires dont les produits ont servi à soutenir certaines charges, à améliorer les conditions de vie des membres et à favoriser le maintien des apprenants. Cette activité intégrée aux actions d’alphabétisation est un facteur de pérennisation qui favorise la participation communautaire. Des progrès ont été réalisés, cependant il n’en demeure pas moins de constater des besoins de qualification au niveau des structures étatiques y compris celles des ONG et au niveau communautaire et la production suffisante de matériel pédagogique adéquat. Le redressement de cette situation serait un facteur de réussite. Les Difficultés rencontrées au niveau de ce volet sont entre autres Sous financement des activités d’AENF Insuffisance de qualification des acteurs de mise en œuvre du projet ; Faible implication des partenaires dans le financement de l’AENF ; Faible capacité institutionnelle et humaine des structures centrales, déconcentrées, celles des ONG et

des communautés ainsi que le manque de logistique pour la supervision Manque de base de données actuelle ; Manque du personnel enseignant en AENF. Les leçons apprises Une bonne sensibilisation/information des communautés et des autorités locales est un facteur de

mobilisation de celles-ci pour la mise en œuvre des projets ; Un accompagnement organisationnel et technique aux communautés par des ONG compétentes et une

bonne collaboration entre les différents acteurs (ONG, Structures étatiques, autorités locales communautés) dans la mise en œuvre des projets est un facteur de réussite et de pérennisation des projets ;

La sélection d’ONG performantes pour la mise en œuvre des activités d’AENF permet l’atteinte des résultats.

Recommandations Pour le futur projet, il est fondamental de tenir compte de toutes les phases de l’alphabétisation à savoir : la pré-alphabétisation, l’alpha initiale, le post-alpha et l’environnement lettré en y intégrant les AGR et les activités de gestion (coordination, supervision et encadrement). Ce qui suppose l’étalement de l’alphabétisation sur une durée de 15 mois au lieu de 9 mois pour atteindre les résultats escomptés. Une telle planification entrainera le rehaussement du coût de l’alphabétisé. En plus de l’appui aux NAFA et aux CAP, une diversification d’approches et de partenaires est nécessaire. Cette situation démontre le sous-financement du sous-secteur. Spécifiquement il convient de: Créer une ligne budgétaire d’investissement pour l’Alphabétisation et l’Education Non Formelle ; Mettre en contact les institutions d’aide à la réduction de la pauvreté avec les ONG partenaires en

vue d’une coopération élargie et renforcée en matière d’alphabétisation et d’éducation non formelle (AENF) ;

Diversifier les partenaires pour la mobilisation des ressources ;

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Prendre en compte intégralement les cibles de l’AENF dans les 3 composantes (accès, qualité et gestion) du nouveau PSE ;

Intégrer des modules en AENF dans les programmes de formation à l’ENI, à l’ISSEG et dans d’autres institutions d’enseignement supérieur;

Recruter et former le personnel enseignant en AENF Renforcer les capacités institutionnelles et humaines (dotation en matériels logistiques roulants,

d’informatique, de reprographie et formation des personnels) ; Mettre en place un dispositif de suivi/évaluation pour assurer une bonne exécution des actions ; Mettre en place un mécanisme de certification pour les personnels d’encadrement, de supervision,

d’animation et des apprenants. Mettre en place une base de données.

Formation continue des enseignants du primaire et du secondaire : L’importance et la nécessité de la formation continue pour l’amélioration des services rendus à l’élève et au système éducatif en général sont deux principes qui sont aujourd’hui largement acceptés par tous. Du point de vue de la Pertinence, les résultats atteints sont en adéquation avec l’objectif d’améliorer les compétences des enseignants en vue de qualifier leurs pratiques de classe et de favoriser la réussite scolaire des élèves. Les formations délivrées répondent aux besoins de développement professionnels des enseignants préalablement identifiés. Les missions de suivi et de supervision ont observé que les enseignants investissent les connaissances acquises dans leurs pratiques de classe. Ce qui montre que les sessions de formation ont eu une valeur ajoutée dans la qualification des formateurs. Sur le plan de l’efficacité, l’utilisation rationnelle des ressources allouées à l’activité a permis d’atteindre les objectifs assignés sauf dans le cas du secondaire où le processus s’est arrêté après la rédaction des modules et l’élaboration des plans de formation. Aussi, l’existence d’un cadre d’harmonisation de la formation continue permet d’éviter des duplications dans les interventions des partenaires. S’agissant de la Viabilité, il convient de mentionner parmi les éléments favorables à la poursuite et l’amplification de la formation continue : (i) les compétences acquises en matière de conception, l’exécution et le suivi-évaluation par les cadres nationaux; (ii) l’existence de modules de formation adaptés aux besoins et (iii) la disponibilité des partenaires à accompagner les activités de perfectionnement des enseignants. Volet : FIERE- Filles Éduquées Réussissent : La Vision de FIERE est « Les filles de 5ème et 6ème années en difficultés d’apprentissage sont mieux formées et réussissent dans leur vie future. FIERE repose sur trois postulats qui sont : (i) les filles éduquées réussissent mieux dans leur vie personnelle, leur future vie familiale; (ii) l’éducation des filles profite aux parents et aux familles ; (iii) l’éducation des filles profite à toute la communauté. A ce jour, 33 préfectures sont impliquées dans la mise en œuvre des activités FIERE. Pertinence Les disciplines identifiées dans le cadre de FIERE pour faire l’objet de cours de rattrapage ont été reconnues comme celles dans lesquelles les filles éprouvaient le plus de difficultés. Il s’agit des cours de français et de mathématique. Il est vrai qu’en tant que disciplines instrumentales, leur maîtrise détermine le succès scolaire des élèves. Quant aux thèmes de formation des enseignantes et des formatrices en français, calcul et en pratique professionnelle eux, obéissent aux besoins de formation identifiés pendant les précédents suivis effectués et aux contenus des fascicules 1, 2,3 et 4 en usage dans les écoles FIERE. Par rapport aux activités para scolaires, développées dans l’approche FIERE, elles rencontrent l’adhésion totale des parents, des cadres de l’éducation et des élèves, bien qu’elles ne soient pas poursuivies dans le cadre de l’extension.

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Efficacité Au regard des résultats de l’approche FIERE énumérés plus haut, on peut affirmer que l’approche a apporté une valeur ajoutée au système éducatif. Il s’agit de la récupération des filles en difficultés scolaires à travers des cours de renforcement en français et calcul qui permet de rattraper un investissement sur l’éducation qui était destiné à une perte sûre. On note également l’accroissement des indicateurs d’accès et de réussite dans les zones touchées dans un contexte de stagnation des indicateurs nationaux. Pérennisation La conscientisation des parties prenantes notamment des mères et des enseignantes, ainsi que l’ancrage de l’approche au sein des structures centrales et déconcentrées est un atout de pérennisation du projet dans la durée. La poursuite des programmes de motivation (octroi de prix, nomination d’enseignantes et de formatrices FIERE à des postes de responsabilité) constitue un levier important pour la pérennisation de l’approche. Viabilité La formation dispensée aux filles deux fois par semaine sur l’approche et la formation continue des enseignantes dans les CAPE, permettent des échanges fructueux et une amélioration nette de la rentabilité des enseignantes. Les effets de cette formation commence à faire tâche d’huile au niveau des autres enseignants non FIERE. Des filles sélectionnées et admises dans les classes FIERE depuis l’expérimentation sont à présent en voie d’achèvement ou ont achevé leurs études universitaires. Efficience Il est clair que pour obtenir des résultats aussi probants, un investissement financier, humain et matériel important a été opéré dans la mise en œuvre et le suivi de FIERE. Ce coût est supporté aussi bien par SFF/FIERE/GIZ, l’État guinéen, que par les communautés bénéficiaires. A titre indicatif, ces dépenses sur chaque fille FIERE revient à cent quatre-vingt-seize mille neuf cent soixante-deux (196 962) GNF en 2011 au PROPEB (rapport évaluation). En considération de tous ces coûts, et des résultats de FIERE en matière de Taux de scolarisation des filles, de taux d’achèvement des filles, d’apprentissages pour la vie et de satisfaction morale des parents et des élèves, on peut affirmer que l’approche est efficiente. Les résultats atteints sont considérables au regard des coûts investis. Difficultés

- Mutation des enseignantes FIERE sans prise de dispositions préalable pour le remplacement ; - Mauvais choix des filles, des écoles et des enseignantes FIERE par endroit suite à

l’incompréhension ou à la mauvaise application des critères de sélection ; - Irrégularité de certaines enseignantes aux cours de renforcement.

Leçons apprises

La formation continue des enseignantes Elle a eu pour effet l’amélioration de leur prestation pour l’application d’une méthode active d’enseignement. Les enseignantes ne cessent d’améliorer leurs compétences et de partager avec les autres leurs connaissances au cours des CAPE. La formation continue doit donc se poursuivre car elle n’est jamais de trop, bien au contraire, il faut cultiver et entretenir les connaissances acquises en vue leur capitalisation. La fierté des enseignantes FIERE réside dans le fait qu’elles ont une pratique de classe très efficace. Elles lient très souvent cette efficacité au matériel confectionné localement qui sert de motivation pour les enfants. En plus de l’efficacité pédagogique, les enseignantes FIERE sont conscientisées sur la nécessité de la réussite scolaire des filles, du rôle essentiel que jouent la méthode d’enseignement et les paramètres sociaux et familiaux dans la survie scolaire d’une fille. Elles s’engagent, s’épaulent, et se déploient pour soutenir les filles et les amener à poursuivre leurs études.

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Les enseignantes FIERE, pour être performantes, ont besoin de renforcement de leurs compétences en Français, en Mathématiques, en Pédagogie active, en confection et utilisation du matériel didactique, en genre et équité et en droit de l’enfant.

Les cours d’éducation sexuelle ou comportementale et de prévention du VIH Longtemps resté tabou, la communication sur la santé sexuelle et reproductive et sur la prévention du VIH commence à s’installer dans les habitudes des populations grâce aux cours reçus dans ces domaines mais aussi grâce à la formation des mères. Toutefois, les résistances persistent pour la communication entre filles et mères. Les parents sont conscients que le thème est important pour un développement sain de leurs filles dans une société en pleine dégradation de mœurs, mais ils comptent sur les enseignantes pour le faire. Une certaine gêne, due à la culture en présence et aux différences d’éducation entre générations empêche bien de parents d’en parler. Cela revêt le caractère important de cet axe, afin que les enseignantes puissent constituer de véritables éducatrices au-delà des cours académiques, et aider les filles dans leur développement physique, moral, pour une réussite de leur vie de femmes. Recommandations

- Poursuite du renforcement des compétences professionnelles des enseignantes ; - Poursuite des cours de rattrapage en faveur des filles FIERE ; - Révision des documents de base FIERE en tenant compte des réalités du terrain et des nouvelles

stratégies de mise en œuvre du programme ; - Poursuite de la sensibilisation des communautés ; - Mise en place d’un système de communication interne et externe efficace basé sur une

diversification des canaux de diffusion ; - Meilleure coordination des activités relatives à la scolarisation des filles pour capitaliser les acquis

de chaque approche ; - Stabilisation des enseignantes en milieu rural par l’application de mesures visant l’amélioration

des conditions de vie dans les écoles, le suivi rapproché des enseignantes, le paiement de la prime d’éloignement etc.

- Intensification du système de suivi avec implication des IRE, DPE, DSEE ; - Augmentation du nombre de filles dans les classes FIERE pour limiter l’exclusion ; - Transparence dans le choix des filles, des enseignantes et formatrices ; - Mobilisation de ressources humaines qualifiées et engagées ; - Prise en charge par le budget de l’éducation des plans d’actions pour la mise en œuvre de l’approche

FIERE. Pour réussir la réduction des inégalités de genre dans l’éducation et promouvoir la scolarisation saine des filles, l’approche FIERE est une référence incontournable aussi bien pour la Guinée que pour bien de pays en Afrique subsaharienne. Sa pertinence prouvée à travers les disciplines et activités ciblées, son efficacité sur l’amélioration de la performance scolaire des filles et partant de la qualité de l’éducation, son originalité au regard de ses cibles d’intervention qui sont les filles en difficultés scolaires font la fierté de ses initiateurs et de ses bénéficiaires. Ces mêmes éléments de satisfaction contribuent à la réalisation des objectifs du millénaire et ceux du PSE. Évaluation des apprentissages des élèves du primaire à l'échelle nationale (CNCESE) : Pertinence : La réalisation de l’étude a permis d’atteindre les objectifs fixés. En outre elle a généré des connaissances utiles à la compréhension des différences de résultats observées entre élèves ainsi que les facteurs influents en montrant clairement que « l’effet école » est à la base des inégalités entre les élèves. Elle a aussi établi que le niveau moyen des élèves connait une baisse considérable des résultats en partie attribuable aux difficultés de tous ordres auxquelles le pays a été confronté entre 2008 et 2011.

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L’évaluation a donné des éclairages sur la persistance des disparités entre les filles et les garçons en faveur des garçons, et de révéler l des différences assez significatives selon la zone, la région, le statut et le type d’école (publiques/privées, franco-arabes ou non) et un pourcentage élevé de redoublants : 27,2% des élèves de l’échantillon, les garçons redoublent moins que les filles (26,4% vs 28,2%). Le redoublement affecte beaucoup plus les écoles publiques que celles privées. Cette évaluation renoue avec le rythme des tests standardisés prévus aux niveaux CP2, CE2 et CM2 permettant ainsi d’avoir une vue globale des acquis des élèves du primaire à l’échelle nationale, donc de disposer à temps d’indicateurs de pilotage fiables. Efficacité : Les outils utilisés et la méthodologie adoptée pour le test de niveau des élèves ont permis d’obtenir des informations escomptées telles que planifiées. Viabilité : Pour des fins de pilotage efficace, les évaluations des acquis des élèves du CP2, CE2 et CM2 méritent d’être systématisées et effectuées à temps. La conduite à terme de ces évaluations par la structure nationale en l’occurrence la CNCESE, a démontré l’existence de compétences nationales capables de mener ce genre d’exercice complexe. Autant dire que les formations reçues et les appuis techniques apportés ont produits leurs effets. Si les moyens sont disponibles, la réalisation des évaluations ne souffrirait d’aucune entrave. Evaluation précoce et apprentissage de la lecture (EGRA – INRAP) : Efficacité : il faut noter que la facilitation des partenaires, la disponibilité de l’équipe chargée de la mise en œuvre, les stratégies et l’utilisation rationnelle des ressources allouées à l’activité ont permis d’atteindre 90 % des objectifs assignés sauf pour le cas du suivi qui doit être réalisé durant l’année scolaire 2013-2014. Et on peut constater aussi, que les résultats atteints sont en adéquation avec l’objectif fixé. Viabilité: s’agissant de la viabilité, il convient de mentionner l’existence d’éléments favorables à la poursuite et l’application des activités EGRA : (i) les compétences acquises en matière de conception, d’exécution et de suivi évaluation en lecture par les cadres nationaux ; (ii) l’existence d’un instrument d’évaluation standardisé en lecture au CP ; (iii) l’existence d’un module de formation adapté aux besoins des enseignants du CP (iv) la disponibilité des émissions sur la problématique de la lecture (v) la disponibilité des partenaires à accompagner les activités d’amélioration des compétences en lecture des élèves du CP. La pérennisation des acquis appelle à (i) revoir à la hausse le budget pour assurer les évaluations en lecture dans toutes les régions ; (ii) prévoir des mesures d’accompagnement permettant aux cadres et aux encadreurs pédagogiques d’assurer avec efficacité le suivi des activités dans les écoles ; (iii) mobiliser les ressources nécessaires pour la poursuite du processus de formation de tous les enseignants du CP en lecture ; (iv) intégrer dans le budget de l’éducation le volet amélioration de la lecture précoce. Point faibles : (i) le calendrier d’exécution des activités n’a pas été respecté à cause du retard dans le recrutement du consultant, (ii) le Gouvernement n’a pas intégré le financement des activités de la lecture dans les dépenses budgétaires de l’éducation. Ce qui engendre une dépendance par rapport aux contributions des bailleurs de fonds, (iii) la faiblesse du suivi des activités sur le terrain. Point forts: (i) l’existence d’une expertise nationale capable de mener les activités EGRA; (ii) la disponibilité d’un instrument d’évaluation standardisé en lecture au CP ; (iii) la disponibilité d’un rapport d’évaluation des compétences en lecture des élèves du CP qui pourrait servir d’intrant pour éclairer et orienter la prise de décision en matière de remédiation. Recommandations Assurer la mise en œuvre régulière (ex, chaque année) d’une évaluation standardisée telle que

l’EGRA, pour mesurer les acquisitions des élèves en lecture-écriture, de manière scientifique : Respecter les calendriers établis pour les évaluations Assurer la maitrise des compétences fondamentales : conscience phonémique, correspondance

graphème phonème, vocabulaire, fluidité (précision et rapidité) et compréhension.

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Étudier les causes des difficultés des enfants en lecture-écriture. Préserver l’approche partenariale entre les différentes équipes impliquées dans le projet (Ministère,

INRAP, équipes techniques, partenaires personnes ressources) pour assurer une continuité efficace des actions en cours.

Fournir aux enseignants en charge des enfants des formations adéquates Explorer des mesures d’appui des élèves à la maison afin d’augmenter le nombre de manuels et

autres matériels disponibles à lire ainsi que des moyens pour assurer l’augmentation des devoirs à la maison

Renforcer le système de suivi rapproché des enseignants Doter le volet EGRA en équipement et en moyens logistiques Mobiliser les acteurs, partenaires et les décideurs autour de la lecture précoce.

Composante 3 : GESTION Gestion des ressources humaines matérielles et financières : Efficacité : la quasi-totalité des activités programmées ont été réalisées même avec la restructuration du programme. Les acquisitions de matériels et équipements, le développement de procédures de gestion et la formation du personnel ont permis de renforcer les capacités de programmation et de gestion des ressources matérielles et financières sur financement extérieur. Si auparavant les budgets du secteur étaient préparés sous la forme classique, depuis 2012 la préparation des budgets des ministères se fait selon l’approche CDMT et la déconcentration budgétaire a été relancée. Par contre, une des faiblesses majeure qui a atténué l’efficacité est le sous financement du secteur en général et de certains niveaux d’enseignement en particulier, notamment l’enseignement technique, l’alphabétisation et l’enseignement primaire dû à la faiblesse de l’arbitrage intra sectoriel. Le retard dans la mise à disposition des subventions entraine parfois la non-réalisation de certaines activités programmées dans les plans d’action des services déconcentrés, notamment celles liées à l’encadrement rapproché des enseignants en situation de classe. Par ailleurs, le système de communication n’a pas fonctionné même si des missions d’information et de vulgarisation du PSE ont été assurées. Le processus de mise à jour et de publication du site web n’a pas été poursuivi. Pertinence : les activités réalisées notamment la programmation selon l’approche CDMT, la déconcentration budgétaire et le renforcement des capacités des gestionnaires des services centraux et déconcentrés sont effectivement en phase avec la réforme des finances publiques de l’État. C’est dans ce cas que l’Éducation a été prise comme secteur pilote. Viabilité : la maîtrise des outils et de la méthodologie de programmation budgétaire par les cadres aux niveaux central et déconcentré est un des éléments permettant d’assurer continuité de la déconcentration budgétaire et de mieux aligner les allocations par rapport aux priorités. La publication des allocations budgétaires, le caractère participatif de préparation des budgets et le respect des procédures du manuel élaborés sont aussi des facteurs favorisant la gestion déconcentrée des ressources publiques et l’efficacité de la dépense publique. Les problèmes récurrents de maintenance des matériels et équipements informatiques posent la question de leur viabilité. La mise en place de contrats de performance incitant tous les bénéficiaires à utiliser les moyens mis à leur disposition peut être une solution adéquate. Leçons apprises : dans la mise en œuvre du PSE, il ressort que l’accent a été porté sur la traçabilité et le suivi du respect des procédures de gestion des ressources extérieures. Par contre, il y’a un déficit d’information dans la gestion des ressources intérieures et une lenteur dans l’application des procédures visant à l’amélioration de l’efficacité de la dépense publique. Pour surmonter ces insuffisances, il est indispensable d’appliquer la même rigueur dans la gestion des ressources publiques que celle observée pour les financements extérieurs. Pour faire évoluer la gestion des ressources financières vers l’approche programme, il importe de renforcer les capacités institutionnelles, organisationnelles et humaines des Divisions des Affaires Financières. Pour améliorer la programmation et la budgétisation axée sur les résultats, la poursuite du dialogue avec le ministère en charge des finances en vue de la prise en compte de tous les aspects du CDMT du Secteur est nécessaire.

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Suivi-évaluation et de la production de statistiques : Efficacité : les données statistiques et les rapports de suivi-évaluation ont été régulièrement produits et ont servi à mesurer les performances du secteur et à relever les écarts par rapport aux objectifs, contribuant ainsi à améliorer le pilotage du programme. Pertinence : les statistiques scolaires constituent de nos jours un outil indispensable pour la gestion du système éducatif. C’est pourquoi, elles méritent une attention toute particulière. Ainsi, la mise à disposition de données statistiques fiables montre une adéquation entre la production de ces données et les besoins de pilotage du système éducatif. Viabilité : sur le plan structurel, le dispositif de suivi-évaluation mis en place est incorporé aux systèmes d’informations statistiques existant, ce qui du coup assure sa pérennisation. Toutefois, le suivi-évaluation devra aller au-delà de la simple production/diffusion d’indicateurs pour déboucher sur des recommandations aux décideurs et partenaires pour une gestion durable et efficiente du système éducatif. Ce qui nécessite un choix judicieux du nombre et de la qualité des indicateurs. Le financement public des activités de production des statistiques doit être suffisant et mis à disposition à temps pour en assurer la régularité. En outre, la préservation et l’utilisation rationnelle des équipements (informatiques, bureautiques et énergétiques) engagent les ministères à mettre en place un système de contrôle et de sécurisation. Le manque d’informations des structures déconcentrées sur les activités de construction et d’équipements planifiées dans le programme en leur faveur constitue un handicap pour leur intervention efficace dans le suivi-évaluation des réalisations d’infrastructures. Par ailleurs, les organes de pilotage et de coordination du programme aux différents niveaux (CNE, CRPE et CPPE) à l’exception du CSN et de quelques CPPE n’ont pas fonctionné tel que prévu par défaut de programmation. Ceci mérite d’être corrigé par les responsables concernés dans le prochain PSE. Recommandations : l’amélioration de la circulation de l’information intersectorielle et intra sectorielle ne devrait pas se limiter qu’à sa planification dans les PAAB, mais plutôt être traduite en action concrète pour permettre d’éliminer les goulots d’étranglement qui persistent. La réactivation du site Web du PSE et la publication régulière d’un bulletin d’informations s’inscrivent dans cette perspective.

IV- ANALYSE DES PERFORMANCES PERFORMANCE DE L’EMPRUNTEUR Sur le plan de la performance des acteurs, la réalisation d’un programme complexe et nécessitant des changements de comportements aura été un résultat majeur dénotant aussi d’une capacité d’adaptation et d’apprentissage dans un processus contraignant sur le plan de la durée de l’exécution et de la simultanéité des actions. La mise en œuvre des stratégies innovantes en pédagogie et en multi gradation a été une preuve positive de rehausser le niveau de scolarisation. Ces stratégies sont désormais inscrites en bonne position parmi les bonnes pratiques d’amélioration de l’éducation même si elles sont à perfectionner. Cependant, malgré les multiples efforts consentis par les acteurs et partenaires, l’amélioration de la qualité des apprentissages des élèves demeure peu satisfaisante parce que de nombreux élèves n’ont pas les compétences de base en lecture, communication orale et écrite ou en calcul. Un certain nombre de raisons expliquent la faible performance du système éducatif dans ce domaine entre autres : (i) la difficulté de vulgariser les pédagogies adéquates à cause de l’émiettement des interventions des services pérennes et des projets sur apports extérieurs ; (ii) la lenteur de la revitalisation des inspections et suivi rapproché des enseignants et au niveau de la classe ; la persistance de la difficulté à utiliser efficacement les manuels scolaires par les maîtres en dispensant les cours ; (iv) l’absence de définition claire et précise des niveaux

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acceptables de lecture, de l’écriture et de calcul en particulier et des critère d’école de qualité de l’école en général. En matière de financement public en faveur de l’éducation, le diagnostic du système éducatif effectué, montre que les moyens financiers sont insuffisantes ou diminuent d’année à alors que la population scolaire croît à un rythme soutenu (13,35 % en 2014, 17,23 % en 2005, 12,25 % en 2006 et 13,14 % en 2007). La nécessité d’inverser cette tendance s’impose. D’une façon général, on note : (i) des inadéquations entre différents ordres d’enseignement ; (ii) la ventilation non optimale entre les catégories des dépenses ; (iii) la forte centralisation de la gestion des ressources financières et matérielles au niveau des services financiers centraux ; et (iv) la rareté des ressources au niveau des services déconcentrés. Il a été envisagé de mener des réformes politiques et institutionnelles pour créer un cadre favorable à l’accélération de la scolarisation, à l’amélioration de la qualité et au renforcement de la gouvernance du système éducatif. La mise en œuvre de ces reformés exigeait une volonté politique, un leadership et des stratégies de sensibilisation, de persuasion et de mobilisation sociale, des attitudes et activités pas qui n’ont pas été uniformément effectives dans tous les domaines. Dans le cas de l’abolition des frais de scolaires dans les écoles primaires, des mesures d’interdiction des prélèvements directs ont été prises avec plus ou moins de succès. Car, les coûts directs et indirects de la scolarité ont continué de peser sur les familles pauvres. La gratuité des manuels scolaires a allégé les charges des parents. La privatisation de certaines fonctions de l’INRAP par rapport aux manuels scolaires (impression, réimpression achat et distribution) a été un autre élément de réussite. PERFORMANCE DE LA BANQUE MONDIALE Le FC-PSE s’inscrit dans la continuité de la coopération entre la Guinée et la Banque Mondiale en tant qu’agence de supervision du FTI dans le secteur de l’éducation. Dans l’ensemble, la qualité de la supervision par l’IDA a été satisfaisante à cause de son timing, de sa pertinence et de sa contribution à la résolution des difficultés rencontrées. Les appuis conseils prodigués dans le cadre du partenariat technique ont permis de corriger des lacunes, d’impulser le processus et d’encourager la prise de décisions sur les questions de reformes

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Annex 8. Comments of Cofinanciers and Other Partners/Stakeholders Not Applicable.

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Annex 9. List of Supporting Documents Aide-Mémoires Financial Management and Procurement Assessments ESMP and Social Safeguards Government Annual Review Reports Guinea. October 3, 2011. Education for All - Fast Track Initiative Catalytic Trust Fund. Education

for All Project - Grant No. TF092364. Reinstated Agreement and Disbursement Letter. _____. December 26, 2013. Education for All-Fast Track Initiative Catalytic Trust Fund.

Education for All Project. Grant No.TF092364. Amendment to Grant Agreement. Joint mission aide-mémoires. 2014 Audit report preparation for the MEPU-EC. World Bank. December 26, 2013. Restructuring Paper for the Education for All Fast Track

Initiative Project. Report No: RES12672, Washington, D.C. __________. August 30, 2011. Restructuring Paper for the Education for All Fast Track Initiative

Project. Report No: 56567-GN, Washington, D.C. __________. March 24, 2011. Republic of Guinea: Interim Strategy Note for FY11-12. Report

No. 59671-GN. _________. 2013. Republic of Guinea: Country Partnership Strategy for FY14-17. Report

No.76230-GN. _________. June 12, 2015. Republic of Guinea: Public Expenditure Review: Volume I—

Education. Report No.97282-GN. _________. Catalytic Fund Program Document on an Education for All-Fast Track Initiative in

the amount of USD117.8 million to the Republic of Guinea for an Education Sector Development Program.

_________. July 9, 2015. Republic of Guinea: Pooled-Fund for Basic Education (FoCEB). Report

No.PAD1085.

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Annex 10. Project Indicators

Table 1A: Component 1 - PDO-Level Indicators (FC-PSE) Indicator Original (2008) First Restructuring (2011) Second Restructuring (2012) Third and Final Restructuring (2013) Project Closing

Original Baseline

Original End target for August 31,

2011 Closing date

Achievement as of 2011

restructuring

Indicator

change

Revised Target for new closing

date (January 15, 2013)


restructuring

Indicator

change

Revised Target for

new closing date

(December 31, 2013)


restructuring

Indicator change

Revised Target for

new closing date

(December 31, 2014)

Achieve-ment

Comments

Access rate in first grade (total/girls)

77% (TBD)

88% (TBD)

82.4% (77.7%) (2009)

85%

(82%) 82%

(78%)

84% (80%)

85% (80%)

86.1%

(81.2%)

Target exceeded. Indicator included in PAD. This was also an ESP indicator. In 2011 RP changed to intermediate-level indicator (and modified to “gross intake rate”).

Gross enrollment rate (girls)

79% 90% 47% (43%)

(in 9 prefects)

Gross enrollment rate for nine targeted prefectu

res (girls)

55(51) 49.6

(45.7)

51% (46%)

53 (47.8)

57

(53)

Target exceeded. Indicator included in PAD. This was also an ESP indicator. Though it was still tracked for the ESP, it was modified under the 2011 restructuring (for the FC-PSE) to focus only on 9 prefectures (Gueckedou, Gaoual, Macenta, Youmou, Forecariah, Telimélé, Kerouane, Madiana, and Dinguiraye) which were the poorest with the lowest enrollment rates in Guinea and required focused interventions. It was also disaggregated by gender. GER by end-of-project was 82.1% (74.6%)

Ratio girls: boys in primary

0.83 0.92 0.82

(2010) Dropped

Indicator included in PAD. This was also an ESP indicator but dropped under 2011 restructuring, by end of project the ratio was 0.89. It was consider somewhat redundant with GER and intake rate indicators.

Direct project beneficiaries (number)

0 New 1,584,282 767,550 1,727,700 1,729,670 1,819,763 1,870,408

Target exceeded. Indicator introduced under 2011 restructuring, as a core Bank indicator. This value refers to: students who benefited from new classrooms, textbooks, trained teachers through in service teacher training

Female beneficiaries (Percentage)

0

(2009) New 48 48 48

Target achieved. Indicator introduced under 2011 restructuring. Disaggregated under 2011 and 2012 RPs (see indicators below)

(i) School construction **

0

(2009) New 80,000 40,700 74,700 76,410

(ii) Teacher training

0

(2009) New 4,282 3,000 3,000 3,400

(iii) Textbooks ***

0 (2009)

New 1,500,000 723,000 1,650,000 1,790,598

** Number of classes average of 45 children in one class. *** 6,600,000 textbooks benefiting 1.65 million children (textbook: pupil ratio of 4).

74

Table 1B: Component 1 - Intermediate-level Indicators (FC-PSE)

Indicator Original (2008) First Restructuring (2011) Second Restructuring (2012) Third and Final Restructuring (2013) Project

Closing

Original Baseline

Original End target

for August

31, 2011

Closing date

Achievement as of

2011 restructuri

ng

Indicator change




restructuring

Indicator

change

Revised Target for

new closing date

(December 31, 2013)


restructuring

Indicator change

Revised Target for

new closing date

(December 31, 2014)

Achieve-ment

Comments

Number of new preschool classrooms constructed and furnished

0 140 50 Dropped

Indicator included in PAD. All preschools/ECD activities were transferred to UNICEF/GPE In Government’s ICR, target was 20 public classrooms and 120 community classrooms; RT target was 60 classrooms. Achievement was 40 public classrooms (UNICEF/GPE) and 10 community classrooms

Number of new primary classrooms constructed and furnished

0 5,698 99

(ongoing)

Number of additional classrooms built or rehabilitated at the primary level resulting from project interventions

1,900

1644 (under

construction)

1,660 1,644

underway 1,660 1,698

Target exceeded. Indicator included in PAD. Indicator replaced by core indicator in 2011. End-of-project achievement is 2,994 if including also those supported by UNICEF/GPE financing

Number of new primary classrooms rehabilitated

0 1,341 Dropped

Indicator from PAD. In 2011 RP, this indicator was replaced with new core indicator below. Indicator value in 2012 was “0”

Number of new additional secondary (collèges) classrooms built/constructed and furnished

0 629 0

Number of additional classrooms built and/or rehabilitate

d at the secondary

level

200 0 72 0 Dropped

This indicator was included in the PAD and measured lower secondary classrooms. Indicator dropped under 2013 restructuring as secondary classrooms would not be supported under the project (canceled due to high prices in relation to the budget). Funds were redirected to quality inputs (which

75

could also be realistically completed during the project period) In-service training of teachers at secondary education level and for the procurement of textbooks 72 secondary classrooms were built by another DP.

Number of adults benefiting from 9-months of NGO literacy training (non-formal)

0 100,000 Dropped

Literacy training interverntions were transferred to UNICEF/GPE. This indicator was dropped under the 2011 restructuring

Number of students with special needs enrolled in primary schools that have benefited from specific special needs support (training/materials)

0 1500 Dropped

Indicator included in the PAD. Activity was supported by a PHRD grant for inclusive education.

Number of professional integration centers built

0 20 Dropped

Indicator included in the PAD. Indicator dropped under 2011 restructuring. With the reduction in funding, there were insufficient funds for this activity.

Number of primary and secondary leavers enrolled in new professional integration courses

5,800 Dropped

Indicator included in the PAD. Indicator dropped under 2011 restructuring. With the reduction in funding, there were insufficient funds for this activity

76

Table 2A: Component 2 - PDO-Level Indicators (FC-PSE)

Indicator Original (2008) First Restructuring (2011) Second Restructuring (2012) Third and Final Restructuring (2013) Project Closing

Original Baseline

Original End target for August

31, 2011 Closing

date


restructuring

Indicator

change




restructuring

Indicator change

Revised Target for

new closing date

(December 31, 2013)


restructuring

Indicator change

Revised Target for

new closing date

(December 31, 2014)

Achieve-ment

Comments

Completion rate in primary (total/girls)

59% (TBD)

71%/ (TBD)

59 Dropped

Indicator included in the PAD. This was also an ESP indicator. Dropped under 2011 restructuring as it was considered unrealistic to have an impact on a cohort during the three year implementation period By end of project, completion rate was: 58.7% (51.2%)

Transition rate to lower secondary

65% 65% 49%

Girls’ success rate at

the examination for entrance

to 7th grade in

100 targeted schools (percent

age)

63 53 55 75.40 71.33

Target exceeded Indicator included in the PAD. This was also an ESP indicator. Replaced under 2011 restructuring (Baseline value at that time was 49)

Students with a passing grade in French and math (grade 4) (percentage)

50% (2005)

55% (Fr) 58% (M)

- 55 53

Indicator replaced with

indicator below

53

No further grade 4

assessment carried

out

Indicator included in the PAD. This was also an ESP indicator. In 2011 RP, merged as one indicator

Students with a passing grade in French (grade 3)

14.25 (June 2012)

New 15.5 15.36

Target not achieved. This indicator was selected to allow for comparability at two different points in time points in time.

Repetition rate in primary

9% 9% 17% Dropped

Indicator included in the PAD. This was also an ESP indicator. By end of project, rate was 12.8 Outcome based on administrative decision not to allow repetition within cycles, and therefore not an actual quality outcome.

77

Table 2B: Component 2 - Intermediate-level Indicators (FC-PSE)


Closing

Original Baseline

Original End target for August

31, 2011 Closing

date


restructuring

Indicator

change




restructuring

Indicator change

Revised Target for

new closing date

(December 31, 2013)


restructuring

Indicator change

Revised Target for

new closing date

(December 31, 2014)

Achieve-ment

Comments

Number of new pre-school teachers trained

0 140 Dropped

Included in the PAD With the reduction in financing, all ECD interventions transferred to UNICEF/GPE

Number of preschool classrooms receiving learning materials and supplies

0 140 Dropped

Included in the PAD With the reduction in financing, all ECD interventions transferred to UNICEF/GPE

National student evaluations take place

2nd, 4th and 6th grade

System for

learning assessm

ent at the

primary level

(supplemental

number)

Yes Partially Yes (2) Yes (1) Yes (1)

Target partially achieved. Included in the PAD. Indicator was replaced with Bank core indicator under 2011 restructuring Assessment system was established but the utility rating was lower than the target. 2012: Assessment carried out for grades 2 and 3 2013: Assessment carried out in grades 2, 3, and 4 In the 2013 RP, this was presented as two separate indicators

Schools implementing reading assessment (Number, Custom)

New 500 0 60 60 79

Target exceeded

Textbooks purchased and distributed (Number)

0 New 1,500,000 2,895,400 6,600,000 6,695,080 6,726,933 7,162,393

Target exceeded This was added as a core indicator under 2011 Restructuring

Ratio of textbooks per student in upper secondary

6 Dropped

78

Number of primary teacher educators trained in ENI (8 modules)

0 Not

specified; 45 for 2008

Dropped

Included in the PAD Not included in 2012 and 2013 RPs as an indicator

Number of primary teachers benefiting from pre-service training

0 6,000 Dropped 9209

Included in the PAD

Number of prefectural in-service primary teacher training plans developed

Not

specified; 38 for 2008

Dropped 38

Included in the PAD

Number of school improvement plans developed

0 3,600 Dropped 8024 Included in PAD

Number of secondary teachers benefiting from pre-service training

0 2,400 Dropped 2980

Included in the PAD

Number of secondary teachers benefiting from in-service training

0 34,500 Dropped 1000

Included in the PAD

Ratio of textbooks per student in grades 1-4

3 3 Dropped Included in the PAD

Ratio of textbooks per student in grades 5-6

4 4 Dropped Included in the PAD

Allocation of textbooks by number of students enrolled (percentage)

54 New 80 52 70 77

Target exceeded. The decrease observed in 2012 was due to the fact that textbooks had not yet been delivered (and were scheduled to be delivered at the beginning of the SY). This indicator replaced indicators measuring ratio of textbooks: students listed above,

Number of primary teachers benefiting from in-service training

18,500

Replaced by: % of teachers benefitting from training have improved their results compared to baseline

90 0 65 54 80

Target exceeded. Included in the PAD 2012 RP: 3,000 teachers have been selected to participate in in-service training. This number was increased in 2013 with the cancelation of the funds geared for secondary school construction.

Number of primary school directors benefiting from in-service training

0 14,250 Dropped

Included in the PAD

Number of DSEE running teacher training programs (with grants)

0 1,215

Dropped

Included in the PAD

79

Table 3A: Component 3 PDO-Level Indicators (FC-PSE)


Closing

Original Baseline

Original End

target for August 31, 2011 Closing

date


restructuring

Indicator

change




restructuring

Indicator change

Revised Target for

new closing date

(December 31, 2013)

Achievement as of 2013 restruc-turing

Indicator change

Revised Target for

new closing date

(December 31, 2014)

Achieve-ment

Comments

Implementation of Annual Budgeted Action Plans (PAAB) at all decentralized levels (Percentage)

0 New 90 0 95 100 100

Target exceeded. Indicator introduced under 2011 restructuring though had been informally tracked in ISRs following the 2011 restructuring (the RP lists it as a “revised” indicator with a baseline value of “0”) On October 10, 2012 – funds were transferred for beginning of school year. Implementation commenced only in 2012.

Portion of recurrent State expenditures for education

13.7% 18.1% 16

(2010) Dropped

Indicator included in the PAD. This was also an ESP indicator. Indicator dropped under 2011 restructuring – because it was not expected that project could have an impact. Note that achievement by end-of-project was 18.1%

Portion of education expenditures for primary

33% 42% 46

(2010) Dropped

Indicator included in the PAD. This was also an ESP indicator. Indicator dropped under 2011 restructuring – because it was not expected that project could have an impact. Note that achievement by end of project was 52.3%

80

Table 3B: Component 3 Outputs (FC-PSE Intermediate-level Indicators)

Indicator Original (2008) First Restructuring (2011) Second Restructuring (2012) Third and Final Restructuring (2013) Project Closing

Original Baseline

Original End

target for August 31, 2011 Closing

date


restructuring

Indicator change




restructuring

Indicator

change

Revised Target for

new closing date

(December 31, 2013)

Achievement as of

2013 restructuri

ng

Indicator

change

Revised Target for

new closing date

(December 31, 2014)

Achieve-ment

Comments

Number of DPE and IRE buildings rehabilitated

1 IRE, 6

DPE Dropped

1 IRE, 0DPE

Included in the PAD

Internal audit of DPE and IRE carried out

1 5 Dropped 0 Included in the PAD

Number of DPE/IRE benefiting from staff training

114/24 Dropped 38/8 Included in the PAD

Human Resources department restructured

No Yes Dropped Yes Included in the PAD

ESP capacity building plan implemented

0 1 Dropped 1 Included in the PAD

Ministry’s annual statistical report published

0 3 No

Yearly education statistics

data availability before the start

of subsequen

t school year54

Yes

No (only

available data

2009-2010) for MEPU-

EC

Yes Yes Yes Yes

Target achieved. Included in the PAD. Revised under the 2011 restructuring.

Teacher management as defined by the allocation of teachers by number of students (Conakry only) (Percentage)

70 New 75 70 80 76.60 76.70

Target not achieved in full, though progress was made under the project. This is an R2 value. Indicator added under the 2011 restructuring. Note that the current value is 80.8

54 The annual education statistics was to report on standard education indicators nationwide, such as primary completion rate, drop-out rate, etc.