The World Bank - FOR OFFICLAL USE ONLY

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The World Bank

FOR OFFICLAL USE ONLY

Report No. 16538

IMPLEMENTATION COMPLETION REPORT

KINGDOM OF MOROCCO

RURAL PRIMARY EDUCATION PROJECT(LOAN No. 3026-MOR)

May 23, 1997

Human Development GroupMiddle East and North Africa Region

This document has a restricted distribution and may be used by recipients only in theperformance of their official duties. Its contents may not otherwise be disclosed withoutWorld Bank authorization.

CURRENCY EQUIVALENTS

Currency Unit: Moroccan Dirham (DH)

1989 US$1 = DH8.491990 US$1 = DH8.241991 UJS$I = DH8.701992 US$1 = D) 18.541993 US$1 = D119.301994 US$I = D119.201995 US$1 = DI8.541996 US$1 = DH18.75

ABBREVIATIONS AND ACRONYMS

ADB African Development BankBAJ Barnamaj Al Aoulaouaiyat Al Ijtmaiya (Social Priorities Program)DPPCEF Direction du Pr6scolaire et du Premier Cycle de l'Enseignement FondamentalDSPP Direction des Statistiques de la Prospective et de la ProgrammationESRP Education Sector Reform ProgramMOF Ministry of FinanceMOE Ministry of EducationMOI Ministry of InteriorSAR Staff Appraisal ReportUNESCO United Nations Educational, Scientific and Cultural Organization

Vice President : Mr. Kemal DervviMDirector : Mr. Daniel RitchieSector Director : Mr. Jacques BaudouyResponsible Staff : Mrs. Dung-Kim Pham __ -

FOR OFFICIAL USE ONLY

IMPLEMENTATION COMPLETION REPORTKINGDOM OF MOROCCO

RURAL PRIMARY EDUCATION PROJECT(LOAN 3026-MOR)

TABLE OF CONTENTS

Preface

Evaluation Sum m ary .................................................... ................... i

PART I - PROJECT IMPLEMENTATION ASSESSMENT .1

A. Evaluation of Project Objectives 1B. Achievement of Objectives .2C. Major Factors Affecting the Project .4D. Project Sustainability .5E. Bank's Performance 6F. Borrower's Performance 7G. Assessment of Outcome .8H. Future Operation .9I. Key Lessons Learned .9

PART I - STATISTICAL TABLES. ........................... 1

Table 1: Summary of Assessments .12Table 2: Related Bank Loans .13Table 3: Project Timetable .16Table 4: Loan Disbursements: Cumulative Estimated and Actual .17Table 5: Key Indicators for Project Implementation .17Table 6: Key Indicators for Project Operation .18Table 7: Studies Included in Project. 19Table 8A: Project Costs ........................................... 21Table 8B: Project Financing ........................................... 21Table 9: Status of Legal Covenants ........................................... 22Table 10: Compliance with Operational Manual Statements ................................... 22Table 1 1: Bank Resources: Staff Inputs ........................................... 23Table 12: Bank Resources: Missions ........................................... 24

PART IH - BORROWER'S REPORT .............................................. 25

ANNEX 1

This document has a restricted distribution and may be used by recipients only in theperformance of their official duties. Its contents may not otherwise be disclosed withoutWorld Bank authorization.

RURAL PRIMARY EDUCATION PROJECT(Loan 3026-MOR)

Preface

This is the Implementation Completion Report (ICR) for the RuralPrimary Education Project in the "ingdom of Morocco. The Loan in the amount ofUS$83.0 million equivalent was approved by the Board on March 14, 1989, and madeeffective on November 1, 1989.

The loan closed on December 31, 1996, following a one-year extensionfrom its original closing date of December 31, 1995. The loan amount was reduced toUS$75.0 million on April 29, 1996. The last disbursement took place on May 23, 1997.

The African Development Bank (ADB) provided parallel co-financing ofUS$40.0 million.

The ICR was prepared by Dung-Kim Pham of the Human DevelopmentGroup, Middle East and North Africa Region (MNSHD), and reviewed by JacquesBaudouy, Manager, MNSHD, and Rend Costa, Project Advisor, MN 1.

The Bank's report has been sent to the Government and the ADB forcomments.

Preparation of this ICR is based on material in the project file, interviewswith task managers who appraised and supervised the project and a visit to the field inDecember 1996. The borrower contributed to preparation of the ICR by preparing anevaluation of the project's execution and initial preparation.

Evaluation Summary

Introduction

The Rural Primary Education Project (Loan 3026-MOR) was approved by theBoard on March 14, 1989. The Project was the result of a shift in the Bank's strategytoward supporting individual subsectors through specific investment operations, withpriority for basic education. In 1987 developments in higher education led to deviationsfrom a previously agreed reform program and the Bank withdrew its support to thesecond phase of that program. The first phase had been supported by the Bank throughthe Education Sector Reform Program (ESRP) Loan (1986). This Project as well as theRural Basic Education Project (1991) continue to address the needs of basic educationdevelopment.

Project Objectives and Design

As presented in the Staff Appraisal Report (SAR), the objectives of the Projectwere:

(a) to increase access to primary schooling in rural areas,

(b) to increase rural primary education participation, particularly for girls;

(c) to improve the quality of primary education;

(d) to strengthen planning, monitoring and evaluation capacity; and

(e) to strengthen the efficient and rational use of resources in primary education.

These objectives were consistent with the Govemment's general policy to developbasic education in rural areas and its specific purposes: (a) to guarantee universal access tothe first cycle of basic education; (b) to improve school participation, and the quality andeffectiveness of the education system; and (c) to ensure better allocation of the resourcesassigned to basic education.

The project was one of the first in the generation of projects which integrated amix of inputs to address demand for education. Rather than provide the traditionalfinancing for school construction, pre-service teacher training and curriculum

development, it provided a combination of inputs geared towards increasing educationquality with the aim of stimulating demand for schooling. These included educationalmaterials, in-service teacher training, programs to train school directors and introductionof health topics in the primary school curricula.

Implementation Experience and Results

(a) The project contributed to positive developments in the physical objectives ofthe Government's education policy. Through large scale school construction, enrollmentof boys and girls increased substantially in rural areas. Despite difficulties at the macrolevel (droughts accelerated migration and reduced living standards), rural enrollmentsincreased by 35% between 1989 and 1995. During the same period, girls' participationincreased by 65%.

(b) The project failed to reach its development objectives. The technical assistanceprogram to address the quality of education was not fully implemented due to a budgetreduction and a significant delay in execution. The MOE was less committed to qualityobjectives than to physical expansion. In addition, the capacity of the MOE to manageand integrate the large TA component was overestimated. Supervision, however, was notpro-active in following the qualitative aspects of the project in order to remedy thesituation in a timely manner.

Assessment of Outcome

The overall outcome is unsatisfactory. Although schools were built and enrollmentincreased, community acceptance of the types of school built was mixed, and most of theactivities directed at improving the quality of education were only functioning on a pilotbasis. The overall unsatisfactory results of the project were mitigated to an extent by suchactivities as: (i) the development and documentation of new curricula, and (ii) theestablishment of a computerized statistics unit staffed with computer literate personnel;both of which constitute a foundation for subsequent developments.

Key Lessons Learned

The following lessons can be drawn from the Project:

(a) Expectations of the development impact of social sector projects should bemoderated. Meaningful development results can be slow to appear. Consequently,project design should anticipate a sustained effort over a long period of time. Moderateexpectations for goals and for the speed of the change process are appropriate. Eachproject can build on the experience and developments of previous projects; together, theseprojects can work towards producing a meaningful impact over a long period of time.

(b) The importance of having relevant but practical performance indicators. Inaddition to output indicators (e.g. enrollments), a project should include outcome and

development impact indicators (e.g. learning achievement, drop-out and promotion rates,budgetary allocation) which allow progress toward project objectives to be measuredduring the life of the project.

(c) Integration of institution building elements in project design andimplementation. Institutional capacity strengthening is generally a lengthy process and itsimplementation usually lags behind that of a project's physical components. It is thereforeimportant to identify which areas of an institution need to be strengthened or expanded.Desired outcomes should be clearly defined and the steps for attaining these outcomesdetailed prior to project start. They should be factored into a stringent timetable togetherwith the physical components. Progress of activities must then be closely monitored sothat any deviations will lead to corrective actions.

(d) Ancillary issues are important factors to be considered in project design.Factors affecting social development are varied and intricate. Issues ancillary to a project'sgoal or processes may indirectly exert a significant influence over its outcome and shouldbe taken into account in design. These issues include factors such as local participation inpolicy formulation, socio-economic factors inherent in the cultural environment, religiousinfluences and climatic influence on a country's economy and educational system.

(e) Methods of construction. Construction under the Project relied on pre-fabricated materials. This method should be avoided in the future. The materials did notadequately meet the needs of users, and because communities were opposed to their use,community involvement in the education process was lukewarm.

(f) The importance of mid-term reviews. Reviews allow staff to evaluate progress,to put in place corrective actions for identified problems, to reassess the project's scopeand adjust its design to meet changing objectives, and to develop plans for the remainingproject period.

PART I

PROJECT IMPLEMENTATION ASSESSMENT

A. Evaluation of Project Objectives

1. In 1985 the Government embarked on an ambitious program to reform itseducational system. Its objectives were to provide more equitable access to children whileimproving quality and keeping costs down. In order to achieve savings in teaching andadministrative staff the primary and secondary cycles, 5 and 7 years respectively, werereplaced by 9 years of basic education followed by 3 years of secondary education. Basiceducation was divided into 6 years for the first cycle and 3 years for the second cycle.Another important measure was the promotion of basic schooling in rural areas, withparticular attention to girls' enrollments.

2. The project was designed to support the Government's reform program, inparticular its primary education program (PEP). As stated in the Staff Appraisal Report(SAR) the objectives of the Project were to: (i) increase access to primary schooling inrural areas; (ii) increase rural primary education participation, particularly for girls; (iii)improve the quality of primary education; (iv) strengthen planning, monitoring andevaluation capacity; and (v) strengthen the efficient and rational use of resources inprimary education.

3. With its objectives covering all aspects of the PEP, the project was ambitious. ThePEP contains a number of important and politically sensitive policy reforms affectingteachers' employment, remuneration structure and career advancement.

4. The project consisted of the following four components:

(a) Increase access and improve facilities through: construction, furnishing andequipment of 11,600 classrooms, 1,400 canteens, 2,900 staff houses, 1,500 schooladministrators' offices, 120 wells and 120 sanitary facilities and staff houses andoffices for school administrators; and through local community participation in theconstruction and maintenance of primary school facilities.

(b) Increase participation, particularly of girls, through: a major textbook programorganized with school cooperatives; promotional campaigns to emphasize the

benefits of female education; and support of local initiatives to increase girls'enrollments and attendance.

(c) Improve the quality of education through: development of new curricula andstandardized achievement testing; strengthening multi-grade teaching; improvingrecruitment of teachers for rural areas; strengthening pre-service and in-serviceteacher training and school management; and improving school health awareness.

(d) Strengthening educational planning, monitoring and evaluation capacities.

B. Achievement of Objectives

Increase access to primary schooling in rural areas and increase girls' participation.

5. Despite droughts which caused migration to accelerate and living standards to fallin the early 1990s, the project contributed significantly towards increasing access toschooling and increasing girls' participation. After a sharp decline from 1984-85 to 1989-90, enrollments (girls and boys) increased, growing at an average annual rate of 6.2%from 1990-91 to 1995-96 (see Annex 1). In rural areas enrollments increased by 35%between 1989 and 1995, against 38% expected at project appraisal. During the sameperiod girls' enrollment increased by 65% against 75% anticipated at project appraisal.

Improve the quality of primary education and strengthen planning. monitoring andevaluation capacities.

6. The impact of this component fell short of expectations due to initial design flawsand implementation delays. Due mainly to two factors, most activities under thecomponent had to be redefined after project effectiveness. First, the MOE hastraditionally been less committed to these types of objectives than to capacity expansion.Second, and just as importantly, the scope of the redefinition suggests that the MOE'scapacity to absorb and integrate the huge TA component originally planned wasoverestimated. As a result, this component has run behind schedule. By the projectcompletion date most activities had been implemented only on a pilot level.

7. Initially, the technical assistance program supporting these objectives wasambitious. After long debate, as a result of which costs were reduced to US$2.5 millionfrom US$4.0 million, the Ministry of Education (MOE) contracted the work to UNESCOin June 1993. UNESCO, as the executing agency, contracted with national andinternational specialists to provide the technical assistance. The majority of internationalspecialists were from Laval University of Quebec. Work under the Government-UNESCOconvention covers two areas. The first, under the Direction du Prescolaire et du PremierCycle de l'Enseignement Fondamental (DPPCEF), dealt with the quality of education.

This area of activities encompasses: (i) preparation and development of new curricula and materials forall levels of the first cycle of basic education, as well as multi-level classes, (ii) introduction of health

The second, under the Direction des Statistiques, de la Prospective et de laProgrammation (DSPP), dealt with planning and evaluation capacities.

8. To reach the pedagogical goals, four phases were planned under the leadership ofthe DPPCEF: (i) diagnosis of the situation, (ii) management training, (iii) production offourteen manuals, and (iv) practical use of the manuals. All these activities took place,though on a limited scale due to the budget reduction: pre- and in-service teacher trainingand training programs for school directors were cut down and preparation of newcurricula did not cover all levels of the first cycle. Furthermore, one of the critical goals,to develop practical guidelines for inspectors, school principals and teachers on the basisof the theoretical manuals has just started; the process will probably not be completedbefore the beginning of the next school year.

9. School health and hygiene topics - activities intended to improve the quality ofeducation - were not integrated with the overall national program on school health. Thetwo-week study tours undertaken by a few doctors did not and could not achieve thisgoal. Computerization of school and workplace accident files included production of aprogram which has yet to be used due to lack of training of staff in the software. Finally,the feasibility study on the production and use of prescription glasses was limited to thelisting of needs and did not make any recommendations, concerning whether theimplementation of a production unit is necessary or feasible.

10. Activities to reinforce planning. monitoring, and evaluation capacity wereundertaken under the leadership of the DSPP. While these activities were satisfactorilyimplemented on a pilot basis a generalization has yet to occur. A unit to computerizestatistical data was created and equipped and its staff trained in computer skills. A pilotoperation to introduce new techniques in data collection, and to familiarize staff with thenew system, has been conducted in the Temara region. Generalization of the pilot'sconclusions should take place prior to the 1997 school year and thus provide a reliablebase for school mapping. Staff involved in activities regarding evaluation and analysis oflearning have been trained in educational research techniques and in operationalizingresearch findings.

11. Studies were undertaken on learning achievement of students in the second andfifth years of the first cycle of basic education, and on promotion procedures from the firstto the second cycle of basic education. Findings from these studies have not yet beencompletely exploited. The preliminary lessons, including the need to establish programs toraise learning achievements among low-income groups in rural areas, will be useful forimproving the quality of future pedagogical programs.

and school hygiene elements into these programs, (iii) teacher training, (iv) administrative trainingfor school principals, and (v) formative evaluation.

Strengthen the efficient and rational use of resources in primary education.

12. Although this objective was part of the project's overall strategy, there were nospecific actions or conditionalities to address the issue. An important study on therationalization and effective use of resources was supposedly completed by theGovernment by September 1989. While discussions of this area must have played animportant part in the dialogue between the Bank and Government, the project files do notcontain any correspondence pertaining to this matter.

13. An analysis of public budget allocations and expenditures for education undertakenin the course of preparing this ICR reveal that there is a consistent bias in favor of post-primary and higher education. Over the years, the first cycle of basic education hasreceived a disproportionately low share of resources, relative to its high share in totalenrollments. In 1995 the first cycle of basic education received 30.9% of the educationbudget, while accounting for 65% of total enrollments. The second cycle of basiceducation and secondary education received 51.2% of the education budget, with 29% ofenrollments; and higher education received 17.9% share with 6% of enrollments. Ofoperating expenditures in basic education, relatively little was spent on items forimproving the quality of education. While there has been a slight improvement from 1989to 1995, as much as 96% of funds were spent on salaries.

C. Major Factors Affecting the Project

Delays in implementing the technical assistance program.

14. The cost of the technical assistance program was debated over three and a halfyears before it was reduced to US$2.5 million from US$4.0 million. The reduction in thebudget allocated to the program and the pressure of time to implement the programprevented a comprehensive revision of its scope. The activities implemented thus lackedsynergy. For example, at project appraisal, activities aimed at improving the quality ofeducation were designed so that new curricula would be developed and guides designed toform the basis for preparation of instructional materials. Inspectors, directors and teacherswould be trained in the new techniques and materials. Due to budgetary reductions andtime constraints, development of new curricula was limited to a few primary grades, themanuals produced remained too theoretical, and the training activities were postponed.

Decentralization of the construction program.

15. Decentralization of responsibility for the construction program to the communes,which was decided upon in 1989, was not supported by a clear division of responsibilitiesbetween MOE and the Ministry of Interior (MOI) nor an agreement on budgetaryallocations. The financing mechanism called for the communes, under MOI supervision,to retain a portion of value added taxes, however MOI requested a substantially largerpercentage of the tax than originally planned. The MOE played a passive role in theconstruction program and lost control over the pace of implementation. The MOEauthorities had difficulties in planning new student registration and performing technicalcontrol of the construction, since neither the exact location nor the level of completion of

the new premnises were known. In addition, disbursement procedures were not revised toreflect decentralization. Use of the loan proceeds for construction slowed down due todelays and failures to submit and process receipts for work completed, from thecommunes through MOI to MOE. Receipts were needed to enable MOE to apply fordisbursements from the Bank. Communes, which had already received funds for theirschools, had no incentive to send the paperwork.

Failure to monitor the effectiveness of activities designed to increase girls' participation.

16. Activities designed to increase girls' participation - the textbook loan program,awareness campaigns, support to local initiatives - were not monitored closely to assessimpact. In the textbook loan program, books were to be lent at low cost with a costrecovery system to allow school cooperatives to maintain adequate textbook supplies. Itwas never put in place. In 1993, feasibility of the program was questioned, but remedialsolutions were not proposed. Awareness campaigns were organized, and seemed to havehad a positive impact on girls' enrollments. The campaigns, which took place at thebeginning of the school year or whenever a new school was about to open, had an initialimpact but lost their effects during the school year. Their impact was fleeting as girlsattendance was not sustained and drop-out rates were high. Investments to supportspecific initiatives requested by the communities were not undertaken.

D. Project Sustainability

17. In response to the urgent need to expand educational facilities to increase access toschooling for a fast growing population during the beginning of the 1990s, prefabricatedmaterials were used. However, this method both failed to satisfy user demands and wasprone to technical problems such as sagging ceilings, falling panels and a lack of thermalinsulation. Most importantly, the communities were not in favor of the prefabricatedschools. They considered the schools to be of low quality compared to schools built underthe traditional method in urban areas. Thus, the strategy of increasing access to schoolingusing prefabricated construction materials has been abandoned as unsustainable.

18. Although the objectives regarding the quality of education and the institutionalstrengthening were not met during the implementation cycle of the project, achievement isfeasible in the long-term. Investments undertaken by the project served as a valuablesource of information and the Bank's on-going operation, BAJI - Education, is usingthese as a foundation for developing its program of activities. Many of the envisionedactivities aimed at improving education quality which were not implemented or werelimited in their scope - such as school management, teaching materials for multigradeteaching, pre-service and in-service training, distribution of textbooks and support toinnovative initiatives to promote schooling - were assumed by BAJI - Education. Thepotential for sustainability is enhanced by the fact that BAJI - Education was developedusing participatory and socio-economic integrated approaches.

E. The Bank's Performance

19. The project was formulated in 1988 and was consistent with Government prioritiesand developments in the Bank assistance strategy. Originally, Bank assistance in thesector was designed as a series of sector adjustment operations, as demonstrated by theEducation Sector Reform Loan (ESRL) (1986). However, developments in highereducation which resulted in deviations from the reform program led the Bank to withdrawits support of the second phase of the ESRL. Instead, the Bank shifted its support toindividual subsectors through specific investment operations. This project was designedto address the needs of expanding and improving primary education.

20. Collaboration between the Bank and the Government from preparation to appraisaland negotiations was good. However, there was a lack of coordination with the AfricanDevelopment Bank (ADB), even though ADB provided parallel financing of 29% of totalProject cost (US$40.0 million). But overall, Bank performance at this stage wassatisfactory.

21. Project preparation. There were strong and weak points in the project's design.On the one hand, the project was innovative in that it integrated a mix of inputs -including educational materials, in-service teacher training, training for school directorsand introduction of health topics in curricula - to increase quality with the aim ofstimulating demand for schooling. It did not embrace the traditional project supplyoriented scope of simply financing school construction, pre-service teacher training andcurriculum development.

22. On the other hand, project design suffered from insufficient knowledge of issuesaffecting basic education. An understanding of effective determinants of demand for basiceducation, especially in poor rural areas and for girls, was incomplete. In addition, noevaluation of costs, financing and policies in the education system was performed. Theseissues were only analyzed in two studies conducted in 1993 and 1994, respectively, late inthe life of the project. Because of this knowledge deficiency, many activities included inthe project did not fit into a coherent framework, making implementation and monitoringmore difficult. During the early stage of project preparation, the Bank's managementexpressed concern about the lack of certainty as to demand determinants. It recommendedthat implementation of proposed activities aimed at increasing access, girls' participation,and the quality of education should be considered experimental, and that the projectinclude evaluation mechanisms to measure their impact. However, aside from a fewindicators on physical aspects and enrollments, the SAR does not contain any indicatorswhich allow an assessment of the activities' impact. In addition, project design did nothave a component to address the objective of strengthening the efficiency and rational useof resources in primary education. It was also never adapted to take account for theconsequences of the decentralization of school construction occurring in 1989-90.Overall, the Bank's performance during preparation was mixed.

23. Project supervision was not pro-active in following up on the pedagogical aspectsof the project and was therefore not effective. Supervision was limited to monitoringphysical achievements, deadlines and disbursements without paying much attention to thequalitative components. There was no continuity of task management. The task managerwho prepared, evaluated and negotiated the project transferred out of the divisionresponsible for project implementation. Between 1990 and 1996, six task managers wereresponsible for supervision. The ten supervision missions undertaken for theimplementation cycle of seven years could be considered adequate if they were solelydevoted to the activities of the project. However, they were combined with missions forthe preparation and evaluation of other projects. In such circumstances, projects undersupervision will not usually receive the required staff attention. This one did not.

24. Findings in supervision reports were inconsistent and Form-590s were notcompleted accurately and comprehensively. Issues raised in a number of reports were notmentioned in subsequent reports, and were deferred to another project without anyconcrete follow-up. As such, it was difficult to assess whether issues had been solved orsimply ignored by task managers.

25. Although a mid-term review was not planned at the project conception, it wasrecommended during one supervision mission. It never took place. A mid-term reviewwould have been beneficial by requiring the supervision team to review the qualitativeobjectives of the project, taking into account the delayed initiation and revised scope ofthe UNESCO managed technical assistance program. Such a review could have ledeventually to rectification and improvement of certain points of the program. Overall, theBank's performance during supervision was unsatisfactory.

F. Borrower's Performance

26. During the preparation stage, the Borrower worked closely with the Bank andprovided insight in the design of the project. The Borrower's input was crucial in makingthis project one of the first in the generation of projects which integrates a mix of inputs toaddress demand factors in education.

27. During implementation, the Borrower's performance was not fully satisfactory.This is consistent with the circumstances which led the Bank to shift its support from theESRL - Phase II to the primary subsector which was the focus of the project. The samelack of Government commitment to carry out its policies under the ESRL was manifest inthe PEP, from which the project drew its design.

28. Implementation also suffered from a rigid administrative structure. Although theterms of reference and cost of the technical assistance program were discussed and agreed,they were debated for over three years within the Government before a convention withUNESCO was signed at a reduced cost. This delay affected achievement of projectobjectives significantly. Once the convention was signed, initiation of the work wasfurther delayed due to structural administrative changes and changes in objectives.

29. The lack of information exchange between the sections within the MOE dealingwith the quality of education and pedagogical subjects prevented those sections fromsharing the benefits of project work and from capitalizing on the results achieved. Thus,while the DSPP and the DPPCEF were heavily involved in quality and pedagogicalsubjects of the program, the section responsible for training educational staff was omittedfrom the information loop. This section could have contributed technically and might havebeen able to share experiences drawn from its daily practical applications. A newfunctional structure is proposed in the MOE, and it is hoped that this will enhance thecomplementarity of work between the different sections.

30. The government's financing procedures are cumbersome. The lack ofaccountability of Ministries - MOE, MOF and MOI - slowed down disbursements,particularly when the classroom construction program was decentralized to the communitylevel. The government is now reviewing the results of a study which identified thebottlenecks and sources of delays in the local financing procedures and will devise anaction plan.

G. Assessment of Outcome

31. The outcome of the physical objectives of the Project was favorable. Despitedroughts which caused migration to accelerate and living standards to fall in rural areas,rural enrollments increased by 35% between 1989 and 1995. During the same period,girls' participation increased by 65%.

32. Results attained in regard to development objectives, which aimed at the quality ofeducation and pedagogical aspects, were unsatisfactory. The technical assistance programdesigned to address these objectives did not fully materialize as planned. Due to thebudget reduction and significant delay in execution, the full benefits of the program werenot realized at project closing.

33. In spite of the overall unsatisfactory rating, it should be noted that some benefitsdid accrue from the project. Rural enrollments increased significantly and the technicalassistance program provided a valuable foundation upon which future developments cantake place.

H. Future Operation

34. Because the current BAJI - Education project addresses similar priorities, itprovides an appropriate framework for the operation of many activities undertaken by theproject. Until the results of BAJI - Education are evaluated, a new project in thesubsector would be premature.

I. Key Lessons Learned

35. The major lessons that can be drawn from the Project are:

(a) Expectations of the development impact of social sector projects should bemoderated. Meaningful development results can be slow to appear. Consequently,project design should anticipate a sustained effort over a long period of time. Moderateexpectations for goals and for the speed of the change process are appropriate. Eachproject can build on the experience and developments of previous projects; together, theseprojects can work towards producing a meaningful impact over a long period of time.

(b) The importance of having relevant but practical performance indicators. Inaddition to output indicators (e.g. enrollments), a project should include outcome anddevelopment impact indicators (e.g. learning achievement, drop-out and promotion rates,financial performance) which allow progress toward project objectives to be measuredduring the life of the project.

(c) Integration of institution building elements in project design andimplementation. Institutional capacity strengthening is generally a lengthy process and itsimplementation usually lags behind that of a project's physical components. It is thereforeimportant to identify which areas of an institution need to be strengthened or expanded.Desired outcomes should be clearly defined and the steps for attaining these outcomesdetailed prior to project start. They should be factored into a stringent timetable togetherwith the physical components. Progress of activities must then be closely monitored sothat any deviations will lead to corrective actions.

(d) Ancillary issues are important factors to be considered in project design.Factors affecting social development are varied and intricate. Issues ancillary to a project'sgoal or processes may indirectly exert a significant influence over its outcome and shouldbe taken into account in design. These issues include factors such as local participation inpolicy formulation, socio-economic factors inherent in the cultural environment, religiousinfluences and climatic influence on a country's economy and educational system.

(e) Methods of construction. Construction under the Project relied on pre-fabricated materials. This method should be avoided in the future. The materials did notadequately meet the needs of users, and because communities were opposed to their use,community involvement in the education process was lukewarm.

(f) The importance of mid-term reviews. Reviews allow staff to evaluate progress,to put in place corrective actions for identified problems, to reassess the project's scopeand adjust its design to meet changing objectives, and to develop plans for the remainingproject period.

PART II

STATISTICAL TABLES

Table 1: Summary of AssessmentsTable 2: Related Bank LoansTable 3: Project TimetableTable 4: Loan Disbursements: Cumulative Estimated and ActualTable 5: Key Indicators for Project ImplementationTable 6: Key Indicators for Project OperationTable 7: Studies Included in ProjectTable 8A: Project CostsTable 8B: Project FinancingTable 9: Status of Legal CovenantsTable 10: Compliance with Operational Manual StatementsTable 11: Bank Resources: Staff InputsTable 12: Bank Resources: Missions

TABLE 1: SUMMARY OF ASSESSMENTS

A. Achievement of objectives Substantial Partial Negligible Not applicable

Macro policies XSector policies XFinancial objectives XInstitutional Development XPhysical objectives XPoverty reduction XGender issues XOther social objectives XEnvironmental objectives XPublic sector management XPrivate sector development XOther (specify)

B. Project sustainabilitv Likely Unlikely Uncertainx

C. Bank Performance Highly Satisfactorv Deficientsatisfactorv

Identification XPreparation assistance XAppraisal XSupervision X

D. Borrower Performance Highly Satisfactory Deficientsatisfactory

Preparation XImplementation XCovenant compliance XOperation (if Lpplicable)

E. Assessment of Outcome Highly Satisfactory Unsatisfactorv Highlysatisfactory unsat.

TABLE 2: RELATED BANK LOANS

Loan Title Purpose | Year of Status

l _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ A pproval

Preceding Operations

1. Education Construction and equipment of 1965 Closed 1975multilateral secondary schools whichprovide basic education withalternative biases (e.g. arts, sciences,commerce, home economics,technical, etc.).

2. Second Education Finance educational research and 1971 Closed 1978teacher training, through constructionand equipment for a NationalInstitute of Pedagogy, a HigherTeacher Training College, RegionalTeacher Training Colleges; scientificand technical training in secondaryschools.

3. Third Education Support Morocco's program of 1976 Closed 1983reforms in the education sector by: (1)design, construction and equipping ofprimary schools, secondary schools,secondary teacher training college,hotel training school, hotel trainingcenters...; (2) detailed preparationand design of technical colleges,engineering institutes, and technicalteacher training college anddemonstration school; (3) equipmentfor a computerized unit; and (4)technical assistance to prepare anational program for technicaleducation and vocational training,and develop curricula.

4. Fifth Education Improve teacher effectiveness at the 1982 Closed 1989primary level; assist the Governmentin meeting more effectively the basiceducational needs of rural children,and improve the quality of scienceand mathematics teaching at thesenior secondary level. The projectwould finance: (a) the provision oflearning aids for existing primaryschools; (b) the construction andequipping of rural primary schoolsand related technical assistance; and(c) the development of programs andof a cadre of qualified staff fortraining senior secondarymathematics and science teachers,through TA and construction andequipping of teacher traininginstitutes.

5. Education Sector Reform The project would form part of a two- 1986 Closed 1989year phase of implementation of theGovernment's education sectorreform program, with provision tomake education more equitable, morecost-effective, and more consistentwith the country's medium-termdevelopment needs. The projectwould assist the Borrower inimproving: (a) equity of education;(b) the efficiency of Morocco'seducation system; (c) containing thegrowth of public expenditures oneducation. The project includesconstruction, equipping of schools,teacher training, foreign fellowshipsand studies in support of neweducational activities.

6. Rural Basic Education Promote equality of educational 1991 OngoingDevelopment opportunity at the middle school level

by improving access andparticipation; and enhance theteaching-learning environment bycontributing to the improvement ofbasic education quality, nationwide.

Following Operations

7. Social Priorities Program: Contribute to the Government's 1996 OngoingBasic Education efforts to boost its educational system

in both qualitative and quantitativeterms and to make its performancecorrespond more closely to that ineconomically comparable countries.The project will target the poorestpopulation in the country; aim tohave an impact on both the supplyand demand for education; and affectinstitutions both upstream (Koranicpreschools) and downstream (literacyeducation for adults) of the formaleducation system. The project willconcentrate on 13 selected provincesand will increase in the access to andretention rates of basic schooling;reduction of the gap between theschool participation rates of boys andgirls; improvement of educationquality; improvement of theperformance of government literacyprograms; and provision of technicalsupport to the Ministry of NationalEducation to operationalize andimplement its Sector Action Plan(which aims to reallocate resources topriority programs and improve

l _________________________ budgetary efficiency).

TABLE 3: PROJECT TIMETABLE

Steps in Project Cycle Date Planned Date Actual

Identification 2/15/88 not available

Preparation 3/28/88

Appraisal 6/88 6/6/88

Negotiations 1/23/89

Letter of Development Policy (if applicable) l

Board Presentation 11/15/88 3/14/89

Signing 7/21/89

Effectiveness 11/1/89

First tranche release (if applicable) n/a

NMidterm review (if applicable) n/a

Second (and third) tranche release (if applicable) n/a

Project completion 12/31/96

Loan closing 4/30/97

TABLE 4: LOAN DISBURSEMENTS:CUMULATIVE ESTIMATED AND ACTUAL

(US$ million)

FY89 FY90 FY91 FY92 FY93 FY94 FY95 FY96 FY97

Appraisal Estimate 0.00 8 00 19.00 42.00 57.00 70.00 81.00 83.00

Actual 0.00 0.00 23.06 25.58 40.36 52.66 55.09 65.65 72.5

Actual as % of estimate -- - 121% 60% 71% 75% 68% 79% --

Date of final disburs. 3/17/97

TABLE 5: KEY INDICATORS FOR PROJECT IMPLEMENTATION

Key implementation indicators inSAR/President's Report Estimated Actual

Modified indicators(if applicable)

1. By project completion in 1995, rural -- Rural enrollmentsenrollments are expected to increase by increased by 35% withabout 38%, with participation of girls participation of girlsincreasing by 75%. increasing by 65%

Other Indicators(if applicable)

TABLE 6: KEY INDICATORS FOR PROJECT OPERATION

Key operating indicators inSAR/President's Report Estimated Actual

Modified indicators(if applicable)

Modified indicators for future operations(if applicable)

TABLE 7: STUDIES INCLUDED IN PROJECT

Purpose as defined atStudy appraisalUredefined Status Impact of Study

1. Program Development and - Finalize the revisions to - Study tours to Canada. Capacity development in humanEvaluation. educational programs for each resources, in analyses of content

subject and level in the primary - Production of learning in order to evaluate and developcycle. matenals. study programs.

- Develop norms and procedures - Translation of learningin the conception of instruction materials.manuals, teaching methods, andevaluation methods in confornity - Training Seminars andwith objectives. workshops in Morocco

- Evaluate revised programs andproceed with adjustments asnecessary.

2. Formative Evaluations of - Establish a database on - Study tours to Canada. Improvement and development ofApprentices. apprenticeship results from key capacity of teaching personnel in

studies on primary cyle. - Production of learning formative evaluations ofmaterials, apprentices.

- Develop norms and proceduresof evaluations of apprentices in - Translation of learningconfornity with pedagogic materials.objectives. - Training seminars in Morocco.

Workshops on self-teachingmaterial following evaluation ofapprenticeship program forteachers and inspectors.

3. Management of Classes with - Improve teaching practices at - Study tours to Canada. Improvement of the teachingMultiple Courses. multiple levels. quality in multiple course

- Production of learning classrooms in rural areas.- Train and re-train teachers materials.responsible for multiple courseclassrooms. - Translation of learning

materials.- Reinforce pedagogicframework and administration of - Seminars on Moroccan, Frenchclassrooms with multiple courses. and Canadian experiences with

regard to CCM.

- Workshops on self-teachingmanuals for teachers regardingCCM.

4. School Management for - Validate functions of - Study tours to Canada. Development of capacity ofPrimary Education. pedagogical matrix for school directors in animation and

administrative personnel in - Production of learning administrative and pedagogicalprimary schools, materials. management.

- Decentralize administrative - Translation of learningfunctions in satellite schools. materials.

- Train and re-train school - Training seminars in Morocco.directors in their newresponsibilities.- Workshops on self-teaching

manuals bor directors involved inpedagogical management andadmninistration of schools.

5. Education Planning. - Put in place an integrated I. Sub-component 7.1: Computerization of activities ofsystem of school mapping development of nlannina the DSPP, training in informationadministration. procedures. and administrative systems, and

putting in place a new- Train personnel and technicians - Study tours to Canada. computerized informationin education planning in the system

.______________________ _ . .development and use of a MIS on - Computerization of the DSPP.

educational data. - Seminars for central and

regional personnel of the DSPP.

- Training tours to the Universityof Quebec.

- Training modules ineducational research for centraland regional personnel of theDSPP.

2. Sub-component 7.2: Studieson educational careers.

- Studies on functions of theeducation system.

- Seminars for the training of Improvement in the definition ofresearchers and controllers. strategies and political education.

- Study tours to IREDU (Dijon).

6. School Health Services. - Introduce teaching modules on - Study tours for 2 doctors to: Computeri7ation of activities inhygiene and nutrition in France, Belgium and the School Health Division.education programs at primary Switzerland.level.

- Concept and computerization- Reinforce school health for the treatment and follow-up ofservices in collaboration with the data on school accidents.Ministry of Public Health.lMinis.y of Public Health, - Prograrn installation at the- Reinforce management of DSC.school health services.

7. Feasibility Study on - Feasibility study on Study undertaken by ICONE on Impact is not yet defined as longProduction and Distribution of organization and managemnent of prescription eyeglasses as operational phase is not inPrescription Eyeglasses. distribution system for production and distribution. place.

prescription eyeglasses in ruralareas. - Non-realization of study phase

for prescription eyeglasses- Recommend operational production and distributionmechanisms for putting in place a program.prescription eyeglassesdistribution program.

TABLE 8A: PROJECT COSTS

Appraisal Estimate (USSM) Actualtlatest estimate (tJSSM)

(include. contingencies)Item_ _ _ _ _ _ _ _ __

Local costs Foreign costs Total Local costs* Foreign Totalcosts*

1. Increased access and improved 771 48.7 125.8 138.4facilities

2. Increased participation 3.8 5.6 9.4 9.0

3. Improved quality 1.6 4.7 6.3 2.5

4. Planning, monitoring and evaluation 0.6 1.9 2.5 1.0

Physical contingencies 5.4 4.0 9.4

Price contingencies 6.8 4.8 11.6

Total 165.0 150.9

* Broken down between local and foreign costs not available at timc of ICR.

TABLE 8B: PROJECT FINANCING

Appraisal Estimate (USSM) Actual/latest estimate (USSM)

Source

Local costs Foreign costs Total Local costs* Foreign Totalcosts*

Governnent 42.0 42.0 35.9

IBRD 36.5 46.5 83.0 75.0

ADB 16.8 23.2 40.0 40.0

* Broken down between local and foreign costs not available at time of ICR.

TABLE 9: STATUS OF LEGAL COVENANTS

Orinal Re_sedCovenant Type Present Fulfi1iment fulilbment Description of covenant

Agreement Section Status date date Comments

3.03 Implementadon Complied The Boffower shall ensure that --

the feasibility study on thesystem for provision ofeyeglasses to students becompleted and furnished to theBank not later than September30, 1990.

4.01b Accounts/Audbt Compiled _ The Borrower shall maintain 1995 auditrecords and accounts; furnish to reportthe Bank not later than six received inmonths after each fiscal year, Septemberthe audit of such report and 1996.other information concerningsaid accounts and the audit asthe Bank shall reasonably

- - - ______________ - - request.

TABLE 10: COMPLIANCE WITH OPERATIONAL MANUAL STATEMENTS

Statement number & Title Describe & comment on lack of compliance

N/A | N/A

TABLE 11: BANK RESOURCES: STAFF INPUTS

Planned Revised ActualStage of project cycle

Weeks US$ '000 Weeks US$ '000 Weeks US$ '000

Through appraisal 38.0 47.9

Appraisal - Board 41.7 69.9

Board - Effectiveness 7.5 16.5

Supervision 20.5 39.2 19.0 41.6 67.2 163.5

Completion 5.5 8.4 7.0 10.5 2.8 4.3

TOTAL 26.0 47.6 26.0 52.1 157.2 302.1

** Due to system changes from MIS to COS, Plan and Revised data are not available forthe full project cycle.

TABLE 12: BANK RESOURCES: MISSIONS

Performance rating

Stage of project cycle

MNY No. Days in Sp.ed Types of problemspemons field stdfsilis represted

Implem. Developostatus object

Through appraisal 2/87 4 15

Appraisal through Board approval 6/88 6 15

Board approval through effectiveness 10/88 2 5 TM; Consultant Government request to increasenumber of school facilities;reduce scope of wells andsanitary facilities; and excludeAdult Literacy component.

Supervision 10/89 2 TM; Educ. Spec. I I - Bid opening for first schoolconstruction trancheinconclusive, resulting in a 6-month delay.

- Change of Minister.Recommendation by thecommissions on various aspectsof the education system due inJune 89, delayed to September89 and further delayed toDecember 89.

5/91 2 TM; Architect I I -Implementation of TAcomponent delayed. Scope ofwork revised.

- Decentralization of schoolconstruction program to localcommunities.

- Sustainability of textbook loanprogram questioned.

2/92 3 Sr. Educ. Spec.; 2 2 - Weak project management.Sr. ImpI. Spec.;,Operations Delay in implementation of TAAssistant component.

- Decentralization of schoolconstruction leads to inadequatequality control of constructionand delay in Bank'sdisbursemnents.

2/93 2 1 Princ. Projets 2 2 - Due to decentralization, PIUOfficer, Sr. Imp]. lost control of constructionSpec. program.

- Contract with UNESCO signedbut work has not stated.

2/94 1 Sr. Educ. 2 2 - Technical quality ofEconomist construction.

-Delays in payments tosuppliers.

- Weak project accounting ofutilization of loan proceeds

7/94 2 Princ. Projects S S - Decision on the provision ofOfficer, Edc. Spec. eyeglasses to rural school

children is pending.

3/95 3 Princ. Projects U S - Slow disbursements due toOfficer, Architect; MOE's inability to collectOperations Analyst supporting documents for

construction work done.

11/95 3 Princ. Projects U S - ApproximatelyUSS11.0Officer, Educ. million will not be utilized fromSpec.; Operations loan.Analyst

6/96 2 TM; School Equip. S S -Due to the important delay atSpec. start-up, full benefits deriving

from the activities undertakenunder the UNESCO Conventioncannot be appreciated.

Completion 12/96 2 TM; Educator s U The prefabricated methods usedin school construcion did notadequately meet the needs of theusers. There were technicalproblems (sagging ceilings,falling panels, problems withheating and cooling). Mostimportantly, the communitiesdid not take a proprietaryinterest in the prefabricatedschools, considering them as lowquality, compared to schoolsbuilt under the traditionalmethod ("en dur") in urbanareas.

Activities prescribed under theTA program contracted toUNESCO took place late duringproject implementation. Theirgeneral multiplying effects willonly occur after loan closing ndtherefore, benefits deriving fromthem cannot yet he seen.

PART m

BORROWER'S REPORT

Project Background

In 1985 the Government launched an educational sector reform program with aview to providing more equitable and cost-effective educational services suited to thecountry's medium-term development needs. Those objectives were to be achieved by interalia:

- Restructuring the 12 years of schooling, both primary (five years) andsecondary (seven years) into nine years of basic education followed by threeyears of secondary education;

- Improving the effectiveness of the educational system in terms of an increasein enrollment rates and accelerating the progression at which the students gothrough the system;

- Curbing growth in public education spending and allocating a largerproportion of resources to basic education.

The Ministry of Education (MEN) carried out a project in support of rural primaryeducation in 1989, cofinanced by the World Bank (IBRD) and the African DevelopmentBank (AfDB).

Primary Education Support Program

Project Obiectives

- Expand access to basic education in rural areas by building classrooms andpurchasing related equipment;

- Raise enrollment rates in rural basic education, especially for girls, byimproving distribution of teaching materials and introducing community-based measures to encourage families to send their children to school;

- Raise the quality of teaching in basic education by strengthening educationalprogram management and trainee teacher evaluation, improving the relevance

of teaching material, training of teachers as well as executive andadministrative staff, improving the quality of teaching in multigradeclassrooms, and strengthening the role of school principals;

Strengthen planning, monitoring and evaluation capacity by improvingeducational planning services;

Promote a more effective and rational use of resources in basic education.

Project Description

Physical Program

- Construction, equipment and furnishing of 11,600 new classrooms and 1,400school cafeterias;

- Construction and equipment of 2,900 new staff housing units;

- Furnishing of 1,500 principals' offices;

- Construction, on an experimental basis, of 120 sanitary units and 120 wells innew or existing schools equipped with cafeterias.

- Purchase of 50 vehicles for provincial educational planning and schoolconstruction services to ensure supervision of the construction program.

- Purchase of textbooks for needy students to be distributed through schoolcooperatives.

Technical Assistance

The project included two technical assistance programs. One, financed by the ADB(700/MOR/10), covered a study on types of school construction. The other, financed bythe IIBRD (7001MOR/13) comprised the following seven components:

* Teaching Components

Component 1: Development of basic education programsComponent 2: Evaluation of teacher traineesComponent 3: Teaching in multigrade classroomsComponent 5: Training for school principals

* Educational Planning Components

Component 7.1: Automation of planning procedures

Component 7.2: Research on the factors influencing student achievementsand prospects.

* School Health Components

Component 8: Upgrading of school health servicesComponent 10: Feasibility study on the production and distribution of

corrective lenses

Project Financinz

The total project cost amounting to US$140.0 million equivalent before taxes, wasfunded as follows: (a) the IBRD loan for US$83.0 million financed 60% of the total; (b)the AfDB loan financed US$40.0 million, or 29% of the total; and (c) the Governmentfinanced the remaining 11% of the project cost (US$17 million). The Government alsodefrayed US$25.0 million in direct and indirect taxes.

Project Implementation Arrangements

The project was carried out by the existing executing units within the MEN incharge of each project component. The Preschool and Primary Education Department(DPPCEF) was responsible for implementing teaching components 1, 2, 4 and 5 of thetechnical assistance program, and the School Health Division implemented components 8and 10.

The Statistics, Planning and Programming Department (DSPP) was in charge ofcarrying out both aspects of component 7: computerization of task planning, and thestudy on factors influencing student achievements and prospects.

The physical program overall, including teaching equipment and textbooks, wascarried out by the Financed Projects Division (DPF) and the Department of Constructionand Equipment (DCE).

The DCE also executed the technical assistance program financed by the AfDB.

Coordination was handled by the DPF within the Planning Department. After thisunit was dissolved, coordination was taken over in early 1995 by the ConstructionDivision within the Department of School Construction and Equipment. Beginning in1996, the Department for Legal Affairs, Cooperation and Communication becameinvolved in coordinating the technical assistance program.

Project Achievements

Summary of Achievements

These relate to achievements under activities financed solely by the IBRD.

Physical Program

The construction program financed by the World Bank was completed within theoriginal timeframe outlined in the staff appraisal report. The program covered 6,841classrooms, 1,861 staff housing units and 893 school cafeterias.

All equipment and furniture designated for the classrooms and cafeterias werepurchased, including the teaching and computer equipment. In addition, 1,500 principals'offices were equipped.

All construction, equipment and furniture contracts awarded under the project werecompleted. Cumulative disbursements for the civil engineering and equipment categoriesunder Loan 3026-MOR were valued at about US$66,207,862 at an exchange rate ofUS$1 to DH 8.5. This exceeded the allocated amount due to the underestimation of theequipment category following the cancellation of US$8.0 million.

Technical Assistance Program

Teaching Components

1. Training

First-level training activities (medium- and long-term courses) took place in Quebecwithin the agreed timeframe.

These 'first-level" training courses were followed by supplementary training for acore group of trainers who were subsequently called the "strategic group".

The supplementary training were of two types:

- co-training among the members of the strategic group;- supervised training courses by the Laval University consultants.

2. Document Production

In order to equip trainers with the required material and provide them with thesupport needed in their role as extension workers, 16 booklets were prepared by LavalUniversity consultants for the educational components. These booklets were translated bylocal experts.

3. Dissemination of Training

In order to target the teachers, training seminars were planned by the strategicgroup for the benefit of inspectors and principals and were held in Morocco. Inspectorswere then to provide training for all teachers.

Following the recommendations of an international expert, this level of training wasreviewed and then replaced with a model based on self-training rather than a basic trainingcourse.

The strategic group developed a timetable which calls for the design and publicationof self-training manuals between November 1996 and March 1997.

Planning Component

Subcomponent 7.1: Development of planning procedures. The main activitiescarried out by the information technology unit set up under the project aresummarized below:

- The information technology prepared, in April 1995, the detailed frameworkfor the new system, which was completed in December 1995.

- The detailed analysis began in January 1996 and continued up to August.

- Computer programming began in June 1996 under the direction of a nationalinformation technology consultant.

- A preliminary trial of data collection (by unit) began in May 1996 at theTemara branch office.

- With the cooperation of four branch offices, an experimental phase began inNovember with the new data programs.

- This pilot project conducted in four sites will be evaluated at a seminarscheduled for April 21 and 22, 1997. Guidelines will then be drawn up from thefindings to prevent further recurrence of problems encountered during that phase.

Several seminars have been held under this subcomponent for the benefit of DSPPcentral and regional staff. Supplementary training workshops in the field of sampling andstatistical analysis have been organized for planning officers.

Self-training materials are now being prepared in collaboration with two experts,(one international and one national), and with DSPP staff.

Subcomponent 7.2: Study on Prospects in School

Two research projects were carried out on the workings of the educational system.The first study examines student learning and achievements in the second and fifth gradesof basic education. A preliminary report provides an analysis of both grades; the finalreport will be available at the end of April 1997.

The second study analyzes the transition from the first to the second cycle of basiceducation. The preliminary report is available, and the final version will be available by theend of April 1997.

A seminar on training of researchers and inspectors was held prior to the studysurveys being carried out, and supplemented by other seminars which dealt with correctingtests and supervision of questionnaires.

School Health Components

The feasibility study on a low-cost eyeglass production unit for disadvantagedstudents, was carried out (component 8), but the subproject itself was never implemented,having been canceled.

Activities under this component were confined to automating the service responsiblefor monitoring school injuries. Software was developed to process files on school injuries.Training for the Division staff in the use of this software is to take place by the end ofApril 1997.

Additional computer equipment is being purchased to reinforce the Division'sinformation processing capacity.

Problems in Implementation

Physical Program

Overall, the implementation timetable for the two components (construction andequipment) was not adhered to due to the following:

- Underestimation of construction costs during project preparation, whichfailed to take into account delays in payments to contractors.

- High turnover of project implementation unit staff between 1989 andDecember 1995.

- Transfer of construction to local communities which contributed to delays insubmission of supporting documents by the communities and funds being blockedby the Ministry of Finance.

- Delays in processing disbursement documentation for the special account dueto administrative constraints.

The implementation of the technical assistance was hindered by a major obstacle,namely the decrease in the budget envelope initially allocated to technical assistance (fromUS$4.0 million to US$2.5 million), for which qualitative objectives and institutionalbuilding were not fully achieved. Negotiations took three years, and commencement ofactivities did not take place until June 1993, following approval of the agreement withUNESCO, i.e. after a delay of more than three years.

It must be noted that the consolidation of the 10 initial components into seven inorder to reduce the budget envelope was speedily done, without involvement from theunits directly concerned with the project. The activities on community-based support andother activities which were to allow for resource mobilization for the project werecanceled. Moreover, a review of component objectives was not carried out in light ofimposed deadlines, which were further curtailed given the imminent closing date.

The delay had repercussions on the completion of project components which werestill in the pilot and evaluation stages, draft documents produced but yet to be revised andfinalized, and limited training for the groups participating in training dissemination.

Project Performance

Physical Programs

If we take into consideration that 1996 is the project completion year, then we cansay that the objectives were more or less achieved. The number of students in rural basiceducation increased 40% over the 1987-88 school year, compared to the 38% target.Enrollment for girls increased 74%, versus the 75% target. Gross enrollment ratesfollowed the same upward trend, rising to 80% and 46% for boys and girls, respectively,compared to the 79% and 49% project targets.

In reference to initial project objectives, one may state that results expected fromeach component did not measure up to those anticipated. However, considering thatdelays were reduced by half, even taking into account start-up delays in technicalassistance activities, the results are evaluated as positive given that the components are ata stage of validation for further expanded implementation.

Teaching Components

The teaching components did not achieve their objectives when measured up againstinitial objectives, if we consider that this would lead to better methods used by inspectors,principals and teachers in programming, evaluation, management, and multigrade teaching.On the other hand, training activities and booklet production - which were widelydistributed - produced a dynamic flow to the gradual changes which will introducedbeyond the present project.

Planning Component

The objective on capacity building for planning, monitoring and evaluation was onlypartly achieved. However, the development of a new information system, for which aninnovative approach was proposed to data collection, represents a major step towardsputting in place a relational database with a view to systematically monitor the educationalsystem. The testing and work undertaken thus far indicates that the new system iswelcomed by external services to the MEN. The evaluation by four branch offices of thepilot testing, planned for April 21 and 22, should lead to an expansion in the use of thenew system to other provinces.

The two evaluation studies of Subcomponent 7.2 provide a better understanding offactors influencing student learning and achievement and point to actions to improveeducational outputs.

School Health Component

The objectives set for this component, which aimed to sensitize the variousparticipants in improving school health, have not been achieved. The activities to becarried out have been either canceled or were performed only in part. However, the staffof the division concerned have acquired knowledge that will enable them to carry out theactivities needed to improve the delivery of school health services beyond the presentproject scope.

Project Follow-up by the World Bank

The World Bank supervised the project through missions and aide-memoiressubmitted to the Ministry. The Bank has also demonstrated flexibility, through theextension of the project closing date, which allowed for the completion of activities thatcould not have taken place under the initial project execution schedule. Still, there havebeen weaknesses in project follow-up, such as:

- Limited number of field supervision missions;- The absence of a tripartite (IBRD, AfDB, Government) mid-term reviews;- Revision to the loan amount (cancellation of US$8.0 million), which led to an

underestimation of equipment, especially teaching equipment;

Lack of coordination between the IBRD and the ADB during projectimplementation.

Lessons Learned

The lessons learned from this project relate to correcting problems that arose duringpreparation, implementation, monitoring and evaluation. These problems can besummarized as follows:

- Preparation was not sufficiently in-depth or detailed with regard toresponsibilities, activities and products.

- Aspects of management were not fine-tune during preparation, and nostandard bidding document prepared.

- Technical assistance was overestimated, and preparation work of terms ofreferences and standard bidding documents was not sufficiently detailed.

- Project implementation suffered from preparatory weaknesses, and lack of anorganizational chart outlining the responsibilities and tasks for each involvedparticipant at the central, provincial and local levels.

- The lack of horizontal and vertical coordination at the central level (withinMEN and other departments) as well as the provincial level (Governor, MENbranch office, and other departments, etc.), affected smooth projectimplementation.

- Lack of a monitoring and evaluation system which would allow for necessaryadjustments during implementation caused delays and ill-founded revisions.

- Lack of involvement by external agencies, where the activities were takingplace, and lack of project information during preparation and implementationcontributed to insufficient support for the project.

Project Sustainability

Following implementation of those actions which were delayed, projectsustainability will be improved through the implementation of the World Bank program onSocial Priorities (BAJ 1), under which an extension of activities under the present projectare found in the new BAJ 1 project components. These include improving access to, andretention rates in the first cycle of basic education, narrowing gender gaps in enrollmentrates, imiproving the quality of teaching and reinforcing planning methodologies,programming, management, and monitoring and evaluation methods in the educationsector. Lessons learned from this project are being used towards achieving the objectivesset for the BAJ 1.

The shortcomings noted in the present project were, in the main, avoided duringthe preparation of the BAJ 1 program. However, delays have been encountered duringthe implementation of this project, though actions taken by each participant were clearlyoutlined, and implementation arrangements at the central and provincial levels wereprecisely defined.

Kingdom of MoroccoImplementation Completion ReportRural Primary Education Project

Evolution of EnrollmentsFirst Cycle of Basic Education (1987/88-1995/96)

87-88 88-89 89-90 90-91 91-92Garpons Fils Total Gargons Files Total Gargons F4es Total Gargons Fles Total Gargons F4ss Total

URBAINNon-doublants 502.0 448.9 951.0 526.5 469.1 995.6 566.9 505.1 1,072 668.2 598.1 1,266 665.4 605.8 1,271Doublants 113.7 83.9 197.6 108.5 77.7 186.3 106.1 72.9 179 99.6 67.6 167 117.8 75.6 193

Total 615.7 532.8 1,148.5 635.0 546.9 1,181.9 673.0 578.0 1,251 767.7 665.7 1,433 783.1 681.5 1,465Nouveaux inscrits 115.5 103.4 218.9 118.2 108.3 226.6 121.6 112.0 233.6 120.4 112.3 232.7

87-88 88-89 89-90 90-91 91-92Gargons FAies Total Gargons Files Total Gargons Fies Total Gar!ons Fies Total Gar9ons Files Total

RURALNon-doublants 558.4 232.7 791.1 518.0 214.0 732.0 508.3 210.5 718.7 600.9 254.6 855.5 617.7 280.0 897.7Doublants 121.2 41.7 162.9 103.5 34.1 137.6 87.1 28.2 115.3 78.1 27.6 105.7 91.8 30.9 122.7

Total 679.6 274.4 954.0 621.4 248.2 869.6 595.4 238.7 834.1 678.9 282.2 961.2 709.5 310.9 1,020.4Nouveaux insrits 124.0 58.3 182.3 133.2 64.1 197.3 139.2 73.4 212.6 147.4 82.0 229.5

87-88 88-89 89-90 90-91 91-92Gar,ons Fies Total Gargons Fies Total Gar,ons Files Total Gargons Fles Total Gargons Files Total

URBAIN + RURALNon-doublants 1,060.4 681.6 1,742.1 1,044.5 683.2 1,727.6 1,075.2 715.6 1,790.8 1,269.0 852.7 2,121.7 1,283.1 885.9 2,168.9Doublants 234.9 125.6 360.5 212.0 111.9 323.9 193.2 101.1 294.3 177.6 95.2 272.9 209.6 106.5 316.1Total 1,295.3 807.2 2,102.6 1,256.5 795.1 2,051.5 1,268.4 816.7 2,085.1 1,446.7 947.9 2,394.6 1,492.6 992.4 2,485.0

Abandons 135.4 78.1 213.4 90.7 54.0 144.7 82.5 54.2 136.6 82.7 50.4 133.1 73.5 48.0 121.5Nouveaux inscrits 239.4 161.7 401.1 251.5 172.4 423.9 260.8 185.4 446.1 267.9 194.3 462.2

Kingdom of MoroccoImplementation Completion Report

Rural Primary Education Project

Evolution of EnrollmentsFirst Cycle of Basic Education (1987/88-1995/96)

92-93 93-94 94-95 95-96

Gar9ons F4es Total Garpons Files Total Gargons Files Total Garpons Fifes Total

URBAINNon-doublants 732.1 661.5 1,394 744.9 680.4 1,425 764.7 700.6 1,465 769.4 713.2 1,483

Doublants 130.4 84.5 215 130.3 84.0 214 124.4 82.5 207 130.5 84.7 215

Total 862.4 746.0 1,608 875.2 764.5 1,640 889.0 783.1 1,672 899.9 797.8 1,698

Nouveaux inscrits 138.6 126.9 265.5 137.8 128.4 266.2 136.9 127.7 264.6 135.4 126.9 262.3

92-93 93-94 94-95 95-96

Gar9ons Files Total Gargons Fies Total Gargons Files Total Gargons Files Total

RURALNon-doublants 615.8 282.4 898.2 663.54 330.702 994.242 707.0 372.8 1,079.8 727.1 403.7 1,130.8

Doublants 90.6 30.4 121.0 99.1 36.3 135.4 102.4 41.4 143.8 109.0 45.2 154.1

Total 706.4 312.8 1,019.2 762.6 367.0 1,129.6 809.4 414.2 1,223.6 836.1 448.8 1,284.9

Nouveauxinscrits 161.1 91.3 252.4 168.4 105.1 273.5 163.5 108.0 271.5 159.8 111.2 271.1

92-93 93-94 94-95 95-96

Gar9ons Fies Total Gargons Ffies Total Gargons Files Total Garpons Fifes Total

URBAIN + RURAL

Non-doublants 1,347.8 943.9 2,291.7 1,408.5 1,011.1 2,419.6 1,471.6 1,073.4 2,545.0 1,496.5 1,116.8 2,613.4Doublants 221.0 114.9 335.9 229.4 120.3 349.8 226.8 123.9 350.7 239.5 129.8 369.3

Total 1,568.8 1,058.8 2,627.6 1,637.9 1,131.5 2,769.3 1,698.4 1,197.3 2,895.7 1,736.0 1,246.7 2,982.7

Abandons 78.2 50.4 128.7 78.2 56.5 134.7 89.0 71.0 160.0 108.8 82.9 191.7

Nouveaux inscrits 299.7 218.2 517.9 306.2 233.5 539.7 300.5 235.6 536.1 295.2 238.1 533.4

IaRD 21270

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