Haiti - Education for All Project - Phase II

Document of The World Bank FOR OFFICIAL USE ONLY Report No: ICR00004083 IMPLEMENTATION COMPLETION AND RESULTS REPORT IDA‐H7400, TF‐17830, TF‐17666 ON A GRANT IN THE AMOUNT OF SDR 43.50 MILLION (US$70.00 MILLION EQUIVALENT) FROM THE INTERNATIONAL DEVELOPMENT ASSOCIATION US$14.75 MILLION FROM THE HAITI RECONSTRUCTION FUND AND US$24.10 MILLION FROM THE GLOBAL PARTNERSHIP FOR EDUCATION TO THE REPUBLIC OF HAITI FOR THE Haiti ‐ Education for All Project ‐ Phase II December 28, 2018 Education Global Practice Latin America And Caribbean Region Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized CURRENCY EQUIVALENTS (Exchange Rate Effective Jun 30, 2018) Currency = Haitian Gourdes HTG 66.58 = US$1 US$1.41 = SDR 1 FISCAL YEAR July 1 ‐ June 30 Regional Vice President: Jorge Familiar Country Director: Anabela Abreu Senior Global Practice Director: Jaime Saavedra Chanduvi Practice Manager: Reema Nayar Task Team Leader(s): Yves Jantzem, Elena Maria Roseo ICR Main Contributor: Axelle Latortue ABBREVIATIONS AND ACRONYMS AF Additional Financing BP Bank Procedures CPF Country Partnership Framework DDE Departmental Directorates of Education ( Directions Départementales de l’Education ) ECVMAS Enquête sur les Conditions de Vie des Ménages Après Séisme EFA 1 Education for All Program First Phase EFA 2 Education for All Program Second Phase EFA‐FTI Education for All Fast‐Track Initiative EGMA Early Grade Mathematics Assessment EGRA Early Grade Reading Assessment ESMF Environmental and Social Management Framework FCV Fragility, Conflict and Violence FIA Accelerated pre‐service teacher training program ( Formation Initiale Accélérée ) FM Financial management FNE National Fund for Education ( Fonds National pour l’Education ) GDP Gross Domestic Product GPE Global Partnership for Education HRF Haiti Reconstruction Fund ICR Implementation Completion and Results Report IDA International Development Association IFR Interim Financial Report IRI Intermediate Results Indicator IRR Internal Rate of Return ISN Interim Strategy Note ISR Implementation Status and Results Report M&E Monitoring and Evaluation MENFP Ministry of National Education and Professional Training ( Ministère de l’Education Nationale et de la Formation Professionnelle ) NGO Nongovernmental Organization ONAPE National Education Partnership Office ( Office National de Partenariat en Education ) OP Operational Policies OPCS Operational Policy and Country Services OPE Operational Plan for Education PAD Project Appraisal Document PDO Project Development Objective PEQH Providing an Education of Quality in Haiti PIPE Transitional Education Sector Plan ( Programme d’Interventions Prioritaires en Education ) PIU Project Implementation Unit PNCS National School Feeding Program ( Programme National de Cantine Scolaire ) PPF Project Preparation Facility PSUGO Universal, Free and Mandatory Schooling Program ( Programme de Scolarisation Universelle, Gratuite et Obligatoire ) QAS Quality Assurance System RAP Resettlement Action Plan RPF Resettlement Policy Framework SHN School Health and Nutrition SMC School Management Committee TWP Tuition Waiver Program UPE Universal Primary Education ( Éducation Primaire Universelle ) USAID U.S. Agency for International Development TABLE OF CONTENTS DATA SHEET I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ............................................................. 6 A. CONTEXT AT APPRAISAL ........................................................................................................... 6 B. SIGNIFICANT CHANGES DURING IMPLEMENTATION ............................................................... 11 II. OUTCOME ................................................................................................................................. 19 A. RELEVANCE OF PDOs .............................................................................................................. 19 C. EFFICIENCY ............................................................................................................................. 27 D. JUSTIFICATION OF OVERALL OUTCOME RATING ..................................................................... 29 E. OTHER OUTCOMES AND IMPACTS .......................................................................................... 29 III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME .................................... 30 A. KEY FACTORS DURING PREPARATION..................................................................................... 30 B. KEY FACTORS DURING IMPLEMENTATION .............................................................................. 31 IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME ... 33 A. QUALITY OF MONITORING AND EVALUATION (M&E) ............................................................. 33 B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY COMPLIANCE ..................................................... 34 C. BANK PERFORMANCE ............................................................................................................. 37 D. RISK TO DEVELOPMENT OUTCOME ........................................................................................ 38 V. LESSONS AND RECOMMENDATIONS ..................................................................................... 39 ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS ................................................................. 41 ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION ............................ 57 ANNEX 3. PROJECT COST BY COMPONENT ................................................................................... 59 ANNEX 4. EFFICIENCY ANALYSIS ..................................................................................................... 60 ANNEX 5. SUMMARY OF BORROWER’S COMPLETION REPORT .................................................. 63 ANNEX 6. SUPPORTING DOCUMENTS ........................................................................................... 64 ANNEX 7. ACTIVE WORLD BANK‐FINANCED PROJECTS DURING EFA 2 APPRAISAL ................... 66 ANNEX 8. RESULTS FRAMEWORK: ORIGINAL AND OFFICIAL REVISIONS .................................... 67 ANNEX 9. DETAILED RESULTS FRAMEWORK VALUES ................................................................... 88 ANNEX 10. DETAILED COMPONENT CHANGES ............................................................................. 99 The World Bank Haiti - Education for All Project - Phase II (P124134) Page 1 of 101 DATA SHEET BASIC INFORMATION Product Information Project ID Project Name P124134 Haiti ‐ Education for All Project ‐ Phase II Country Financing Instrument Haiti Investment Project Financing Original EA Category Revised EA Category Partial Assessment (B) Partial Assessment (B) Related Projects Relationship Project Approval Product Line Supplement P132756‐AF GPE to Haiti Education for All Project ‐ Phase II 29‐Jun‐2013 Recipient Executed Activities Additional Financing P147608‐AF for Haiti Education for All Project Phase II 25‐Jun‐2014 IBRD/IDA Organizations Borrower Implementing Agency Ministere de l'Economie et des Finances Ministère de l'Education Nationale et de la Formation Professionnelle, Ministère de l'Education Nationale et de la Formation Professionnelle Project Development Objective (PDO) Original PDO The objective of the Project is to support the Strategy for Rebuilding the Education System through the implementation ofsustainable programs to improve: (a) access, particularly of under‐served populations, to Primary Education; (b) quality of PrimaryEducation; and (c) the institutional capacity in the Recipient's education sector. The World Bank Haiti - Education for All Project - Phase II (P124134) Page 2 of 101 Revised PDO The objective of the Project is to support: (i) enrollment of students in select non‐public primary schools indisadvantagedareas;(ii) student attendance in select public and non‐public primary schools in disadvantaged areas; and (iii)strengthened management of the Recipient's primary education sector. FINANCING Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$) World Bank Financing IDA‐H7400 70,000,000 69,998,058 64,359,542 TF‐17666 14,750,000 14,750,000 14,750,000 TF‐17830 24,100,000 24,100,000 24,100,000 Total 108,850,000 108,848,058 103,209,542 Non‐World Bank Financing Borrower/Recipient 0 0 0 Total 0 0 0 Total Project Cost 108,850,000 108,848,058 103,209,542 KEY DATES Approval Effectiveness MTR Review Original Closing Actual Closing 01‐Dec‐2011 03‐Apr‐2012 20‐Jan‐2015 30‐Jun‐2015 30‐Jun‐2018 29‐Jun‐2013 30‐Jun‐2018 The World Bank Haiti - Education for All Project - Phase II (P124134) Page 3 of 101 RESTRUCTURING AND/OR ADDITIONAL FINANCING Date(s) Amount Disbursed (US$M) Key Revisions 22‐Aug‐2012 6.90 Reallocation between Disbursement Categories 04‐Jun‐2014 38.59 Additional Financing Change in Project Development Objectives Change in Results Framework Change in Loan Closing Date(s) Reallocation between Disbursement Categories Change in Safeguard Policies Triggered Change in Legal Covenants Change in Institutional Arrangements Change in Implementation Schedule 10‐Oct‐2014 47.01 Additional Financing Change in Results Framework Change in Components and Cost Change in Loan Closing Date(s) Change in Legal Covenants Change in Institutional Arrangements Change in Implementation Schedule 20‐May‐2015 47.01 Change in Results Framework Reallocation between Disbursement Categories Other Change(s) 08‐Aug‐2016 56.42 Change in Project Development Objectives Change in Results Framework Change in Components and Cost Change in Loan Closing Date(s) Reallocation between Disbursement Categories Change in Disbursements Arrangements Change in Safeguard Policies Triggered Change in Legal Covenants Change in Institutional Arrangements Change in Implementation Schedule 04‐May‐2017 61.70 Change in Results Framework Change in Components and Cost Change in Loan Closing Date(s) Reallocation between Disbursement Categories Change in Disbursements Arrangements Change in Legal Covenants Change in Institutional Arrangements Change in Implementation Schedule Other Change(s) The World Bank Haiti - Education for All Project - Phase II (P124134) Page 4 of 101 KEY RATINGS Outcome Bank Performance M&E Quality Satisfactory Satisfactory Substantial RATINGS OF PROJECT PERFORMANCE IN ISRs No. Date ISR Archived DO Rating IP Rating Actual Disbursements (US$M) 01 20‐Mar‐2012 Satisfactory Satisfactory .20 02 30‐Oct‐2012 Satisfactory Satisfactory 7.10 03 29‐May‐2013 Moderately Satisfactory Moderately Satisfactory 19.22 04 09‐Dec‐2013 Moderately Satisfactory Moderately Satisfactory 28.18 05 17‐May‐2014 Moderately Satisfactory Moderately Satisfactory 38.59 06 08‐Jan‐2015 Moderately Satisfactory Moderately Satisfactory 47.01 07 15‐Jul‐2015 Moderately Satisfactory Moderately Satisfactory 58.43 08 13‐Jan‐2016 Moderately Satisfactory Moderately Satisfactory 63.24 09 30‐Jun‐2016 Moderately Satisfactory Moderately Satisfactory 84.97 10 04‐Jan‐2017 Satisfactory Satisfactory 99.60 11 10‐Aug‐2017 Satisfactory Satisfactory 99.72 12 26‐Mar‐2018 Satisfactory Satisfactory 103.21 13 29‐Jun‐2018 Satisfactory Satisfactory 103.21 SECTORS AND THEMES Sectors Major Sector/Sector (%) Education 100 Early Childhood Education 2 Public Administration ‐ Education 29 Primary Education 69 The World Bank Haiti - Education for All Project - Phase II (P124134) Page 5 of 101 Themes Major Theme/ Theme (Level 2)/ Theme (Level 3) (%) Human Development and Gender 94 Education 82 Access to Education 41 Education Financing 41 Nutrition and Food Security 12 Nutrition 6 Food Security 6 Urban and Rural Development 7 Rural Development 7 Rural Infrastructure and service delivery 7 ADM STAFF Role At Approval At ICR Regional Vice President: Pamela Cox Jorge Familiar Calderon Country Director: Alexandre V. Abrantes Anabela Abreu Senior Global Practice Director: Keith E. Hansen Jaime Saavedra Chanduvi Practice Manager: Chingboon Lee Reema Nayar Task Team Leader(s): Peter Anthony Holland, Patrick Philippe Ramanantoanina Yves Jantzem, Elena Maria Roseo ICR Contributing Author: Axelle Latortue The World Bank Haiti - Education for All Project - Phase II (P124134) Page 6 of 101 I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES A. CONTEXT AT APPRAISAL Context Country Background 1. At the time of preparation of the Haiti Education for All Project ‐ Phase II (EFA 2) in 2011, Haiti was a country that displayed classic signs of fragility. It had suffered a series of external shocks, which increased its fragility and reversed the small poverty gains attained between 2004 and 2008. In 2007, an international spike in food and fuel prices deeply affected its economy. In 2008, a series of tropical storms and hurricanes caused widespread damages and losses estimated at approximately US$900 million (15 percent of gross domestic product [GDP]). In January 2010, a massive earthquake (7.3 on the Richter scale) struck Port‐au‐Prince and other cities in three of the 10 administrative departments, causing the worst humanitarian disaster in Latin America and the Caribbean in recorded history. Haiti suffered from widespread destruction, the death of an estimated 3.5 percent of the population, and the displacement of 16 percent of the population. The total damage was estimated at US$7.9 billion (120 percent of GDP). Nine months later, in October 2010, a cholera epidemic struck the country and afflicted 285,000 individuals and caused nearly 5,000 deaths as of April 2011. With a GDP of US$741 per person in 2011, Haiti ranked 158th of 183 countries on the United Nations Human Development Index. It was estimated that over half of the Haitian population lived in extreme poverty (earning less than US$1 per day) and 78 percent on less than US$2 per day, with these rates being higher in rural areas. 2. In spite of these extreme challenges post the earthquake and extreme fragility that endured for several years to come, at the time of Project appraisal (nearly two years after the earthquake), Haiti was in a phase of recovery: economic activity had mainly resumed, and the Haitian economy was projected to have grown by 6.1 percent in 2011. Furthermore, improving Haiti’s human capital, including by improving access to basic services, was recognized as being critically linked to Haiti’s growth prospects. Rebuilding the education system was a centerpiece of the President’s campaign, and Universal Primary Education ( Éducation Primaire Universelle, UPE) was at the heart of his policy priorities. Sector Background 3. Haiti’s education system faced a fragile and complex situation at the time of appraisal, including difficulties in relation to both the demand for and the supply of education. Even before the 2010 earthquake, the sector was plagued by a lack of reliable data, shortages in schooling infrastructure, trained teachers, and effective governance mechanisms. The earthquake exacerbated and compounded these issues further by causing the death of over 1,000 teachers and staff from the Ministry of National Education and Professional Training ( Ministère de l’Education Nationale et de la Formation Professionnelle, MENFP), the loss of 85 percent of the schools in affected areas, leaving a Ministry and a Minister in a state of trauma, and resulting in up to 2.9 million children experiencing an interruption in their studies or continuing to lack access to education due to school closings. On the demand side, households struggled to finance education, as over 80 percent of primary and secondary schools were nonpublic, 1 and the average tuition cost of US$70 per child per year was prohibitive. Families most often cited the cost of education as the most important barrier to education access. This constraint was especially relevant for families living in rural areas, which were characterized by poverty rates of 82 percent (and 77 percent in extreme poverty). On the supply side, there were not enough spaces for children to enroll in school; an estimated 400,000 to 500,000 children ages 6 to 12, mostly in rural areas, were not attending school. Although funds poured into the country post the earthquake, the donor community suffered from a great lack of coordination, 1 Nonpublic schools include the multitude of school types which are not directly managed and financed by the Ministry of Education—these include for‐profit private schools, schools managed by nonprofit organizations, religious schools, and so on. The World Bank Haiti - Education for All Project - Phase II (P124134) Page 7 of 101 fragmentation, and competing priorities and interests; this lack of coordination was further exacerbated by an extremely weakened counterpart and fragile context. 4. The limited available data at the time also revealed that the quality of education was uneven and often very low, especially in the rural areas: on average, children in grade 3 were able to read fewer than 23 words per minute, far below the standard of 60 words per minute for early primary reading fluency. Twenty‐nine percent of students studying in Haitian Creole were unable to read a single word by grade 3, and children answered fewer than 10 percent and 17 percent of reading comprehension questions correctly in French and Creole, respectively. On the positive side, however, Haiti had nearly achieved the goal of eliminating gender disparities in primary and secondary education in 2009. 5. With respect to institutional capacity, the earthquake had also greatly diminished the already‐limited ability of the MENFP to regulate a mostly nonpublic system; most Ministry buildings had collapsed, thousands of civil servants had perished, and trauma was widespread among the survivors. As an example, 1,200 staff and teachers from the MENFP alone died during the collapses of the Ministry’s main building and of over 4,200 schools. At the time of appraisal, about 90 percent of schools were nonpublic. Before the earthquake, fewer than 20 percent of nonpublic schools were functioning with a permit from the MENFP, due in part to the MENFP’s inability to undertake the necessary activities to accredit schools. Post the earthquake, this already‐low capacity was drastically weakened, as was the Government’s ability to finance even the most basic sector expenses. 6. The sector was hence characterized by a post‐disaster context of high fragility, greatly diminished institutional capacity, limited data availability, political uncertainty, and unstable sector financing. In this context, the Project preparation team had to balance the level of ambition and risk‐taking in Project design, while considering the context of the country and the sector. Rationale for World Bank Support 7. The World Bank had re‐engaged in Haiti in 2005, planning to support a three‐phase program with each phase lasting three to four years; EFA 2 was the second phase of this support program. The phased program began with the Education for All Project in Support of the First Phase of the Education for All Program (EFA 1) (P099918). EFA 1’s successes formed the basis for the development of EFA 2 (the Project), which aimed to build on EFA 1 by financing the continuation of important priorities started under EFA 1 and help bridge the anticipated US$1 billion financing gap for implementing the MENFP’s Operational Plan for Education (OPE), the strategy document outlining its national priorities. In addition, in response to the availability of additional funds and the evolution of critical needs in subsequent years, between 2008 and 2010 the World Bank had begun financing three additional operations at the time of Project appraisal. 2 These operations focused on school reconstruction, teacher training, and post‐earthquake support to teachers in affected schools through grants (see annex 7) and were closing in 2012 and 2013. EFA 2 consolidated the World Bank’s education portfolio by continuing and expanding the most impactful activities from these operations. This allowed the MENFP and World Bank to reduce duplicate reporting and administrative processes and focus their efforts on the more substantive activities. In a chaotic donor landscape with tremendous sector financing needs post the earthquake, EFA 2 would also allow the World Bank to serve an important role in mobilizing donor resources (Canadian funds through the Catalytic Fund, the Caribbean Development Bank through parallel financing, and the Global Partnership for Education, GPE) as well as convening various 2 These were the Meeting Teacher Needs for Education for All Project (P106621), the Emergency School Reconstruction Project (P115261), and the Education for All Fast‐Track Initiative (EFA‐FTI) Catalytic Fund Project (P114174). Annex 7 provides a table with the active World Bank‐financed projects during EFA 2 appraisal. The World Bank Haiti - Education for All Project - Phase II (P124134) Page 8 of 101 partners around the OPE, namely the Inter‐American Development Bank, Canada, the Caribbean Development Bank, and the GPE, among others. Theory of Change (Results Chain) 8. The Project had four objectives which made up the original project development objective (PDO). First, the Project would increase enrollment to improve access to primary education . 9. Second, the Project would improve the quality of primary education through support to: (a) an accelerated pre‐ service teacher training program ( Formation Initiale Accélérée, FIA) and (b) financing a number of activities aiming to produce a cadre of qualified community instructors in rural areas. 10. Third, the Project would improve institutional capacity in the education sector by: (a) financing goods, training, and consultancies aimed at improving sector management and capacity by modernizing and strengthening the competencies within five key directorates at the MENFP central level and establishing program‐based budgets between the MENFP central level and the decentralized Departmental Directorates of Education ( Directions Départementales de l’Education, DDEs), thereby increasing their access to funds and results orientation; (ii) fostering the establishment of public‐private partnerships in Haiti’s largely nonpublic education system by creating the National Education Partnership Office ( Office National de Partenariat en Education, ONAPE) and funding student assessments and evaluations to increase MENFP monitoring and evaluation (M&E) capacity. 11. Fourth, a crosscutting objective of the Project was to promote the sustainability of the Project’s chosen approaches and programs, in recognition that the sustainability of Project activities was vital to the achievement of UPE in Haiti. Thus, strategies (described below in the Components section) were included in the Project design to facilitate the financial and operational sustainability of key activities of the Project, including notably with respect to the Tuition Waiver Program (TWP) and community‐based schools. 12. Furthermore, as a second phase Adaptable Program Grant and part of a broader program, the Project would contribute to achieving the higher‐level EFA Program objective, approved by the Board of Executive Directors on April 26, 2007: to improve access to primary education for poor children ages 6‐12, while improving equity, quality, and governance of the education sector. Specifically, access and quality were explicitly mentioned in the EFA 2 PDO, while governance was a sub‐objective related to the capacity‐strengthening activities, which over time could be expected to improve the manner in which the rules, norms, and actions in the education system were undertaken to achieve results. Improving equity in education was implicit in the Project design, in particular because of the targeting mechanisms allowing the Project to reach some of the poorest families and underserved areas of the country. 13. Finally, the Project was an integral part of the World Bank Group Haiti Interim Strategy Note (ISN) for 2012 which aimed to support the Government of Haiti (GoH) in implementing sustainable post‐earthquake reconstruction. Through its design built to increase access to education, it was expected that the Project would contribute in a substantial way to achieving the third objective out of the four ISN overarching objectives: building human capital. It would also contribute to a crosscutting theme of building governance and capacity in favor of reconstruction post the earthquake, through its capacity‐strengthening activities. The World Bank Haiti - Education for All Project - Phase II (P124134) Page 9 of 101 Project Development Objectives (PDOs) 14. The original objective of the Project, as stated in the Project Appraisal Document (PAD) and in the Financing Agreement, was to support the strategy for rebuilding the education system through the implementation of sustainable programs to improve: (a) access, particularly of underserved populations, to primary education; (b) quality of primary education; and (c) the institutional capacity in the recipient's education sector. Key Expected Outcomes and Outcome Indicators 15. Flowing from the PDO, the main outcomes originally expected as a result of Project interventions were: a. Outcome 1: Access to primary education is improved, particularly by underserved populations; b. Outcome 2: Quality of primary education is improved; c. Outcome 3: Sustainable programs are implemented (which support the improvement of primary education access and quality, and the institutional capacity in the education sector); d. Outcome 4: Institutional capacity in the education sector is improved. 16. These outcomes would be measured using the following indicators: a. PDO Indicator 1: Access: Number of children enrolled through the provision of tuition waivers (baseline: 80,000; end target: 100,000 [annual, non‐cumulative]) b. PDO Indicator 2: Quality: Percentage of children enrolled in participating schools for more than one year reading at grade level in grade 3 (baseline: 16 percent; end target: 20 percent) c. PDO Indicator 3: Sustainability: Percentage of community teachers financed by the Government of Haiti. (baseline: 0 percent; end target: 90 percent) d. PDO Indicator 4: Capacity: Percentage of schools inspected at least once per year by the MENFP (baseline: 0 percent; end target: 75 percent) Components 17. The Project consisted of four components. For most components, the Project’s actual expenditures are higher than the appraisal‐stage estimates because of additional financing (AF) added later, which increased the total amount of funds available for Project implementation. Actual expenditures for component 3 were slightly lower than the planned amount at appraisal because of reallocation of funds toward other activities (see table 1). 18. Component 1. Improving Access to Quality Primary Education: (Appraisal: US$45 million; Actual Expenditure: US$55.62 million 3 ). This component was composed of three sub‐components supporting enrollment. i. Enhance the TWP: The first subcomponent aimed to improve the quality of the existing TWP, which had been established and successfully implemented under EFA 1, by providing student enrollment grants to School Management Committees (SMCs) of participating nonpublic schools. The grants would allow the schools to enroll 100,000 primary tuition‐free students and who would receive a minimum number of textbooks. In return for participating in the program, schools agreed to abide by quality and fiduciary standards and procedures established by the MENFP. Capitalizing on lessons learned from its implementation under EFA 1, the Project proposed improvements to the TWP such as strengthening the financial and school management capacities of SMCs, evolving toward a results‐based model, promoting increased accountability of participating schools via 3 The actual expenditures include the tuition waiver and community‐based school programs, as well as post‐hurricane construction and rehabilitation. The SHN Program was eventually moved to component 2, so it is not included in actual component 1 expenditures. The World Bank Haiti - Education for All Project - Phase II (P124134) Page 10 of 101 tools such as school scorecards, strengthening sanctions for non‐compliance of schools, and linking the program to the Project‐financed accelerated teacher training program by encouraging TWP schools to hire trained teachers. Additional aspects envisaged that would help make the program sustainable were the gradual incorporation of tuition waivers into the education budget and identifying a process for graduation from the full subsidies of the program for participating schools, leading to new partnership and financial support arrangements between the MENFP and schools and a more manageable level of financing for the Government. ii. Support to Communities: Piloted in 10 communities in the lead‐up to Project preparation, this subcomponent would provide grants and training to 200 rural communities to offer basic educational services to school‐aged children by building or rehabilitating, equipping, and operating schools, including the target of creating or rehabilitating 700 classrooms. With support from and the supervision of the MENFP and local government, training in grassroots management would be provided to community representatives. Community‐based teacher salaries would initially be financed by the Project and would be taken on by the Government budget—an arrangement agreed with the Government’s Ministry of Finance. At least 90 percent of salaries would be covered by the Government by Project end, thereby helping to ensure the sustainability of the program. The schools would also be officially recognized by the MENFP as public, community‐based schools, thereby providing the schools with a clear legal, sustainable status. iii. School Health and Nutrition (SHN): Implemented by the National School Feeding Program ( Programme National de Cantine Scolaire, PNCS) and delivered by nongovernmental organizations (NGOs), this subcomponent would finance the provision of a daily morning snack and hot meal representing 1,200 calories per child per school‐day, biannual deworming, and the provision of vitamin A for 70,000 primary school children annually. 19. Component 2. Support to Teaching and Learning: (Appraisal: US$10 million; Actual Expenditure: US$33.89 million 4 ) i. Expand Pre‐service Teacher Training: This subcomponent would support the continuation of the FIA—established under EFA 1 5 —aiming to certify an additional 3,300 primary teachers by Project end. Working in partnership with teacher training institutes, the FIA consisted of one year of intensive institution‐based training followed by two years of classroom‐based practice, after which certified teachers could be hired into the education system. Teacher candidates were selected using an entrance exam and other criteria and received stipends during the training program. ii. Support to Reading Instruction and Distance Education: This subcomponent aimed to support a host of activities to improve reading instruction and develop distance education policies and technologies, including in particular training for qualified community instructors in rural areas. Other subcomponent activities would include the development of a teacher’s guide with daily lesson plans for use by teacher trainees. The training curriculum would include the structured reading instruction approach Lekti se Lavni (Reading is the Future), which was already in use by the MENFP for improving reading instruction in early grades. 4 The actual expenditures include the SHN Program (including post‐hurricane), pre‐service teacher training activities, and support to reading instruction/distance education activities. 5 At the time of preparation of EFA 1, there was a severe lack of trained teachers: an estimated 10,000 new teachers were needed to achieve education for all, but nationwide just 450 new teachers were certified each year. EFA 1 therefore aimed to increase the output of trained teachers to about 1,200 per year. The World Bank Haiti - Education for All Project - Phase II (P124134) Page 11 of 101 20. Component 3. Institutional Strengthening and Governance: (Appraisal: US$4 million; Actual Expenditure: US$1.21 million) i. Modernization and Transformation of the MENFP: This subcomponent would finance goods, training, and consultancies to increase sector management capacity by modernizing and supporting MENFP entities at the central and decentralized levels. Activities at the central level would include the updating of accounting systems and training in, among others, information management, communications strategies, procurement procedures, database creation and data collection, and environmental safeguards. At the decentralized level, DDEs would benefit from program‐based budgets, allowing them to better conduct their supervision and support role to schools, teacher training centers, and communities as well as supervising the implementation of OPE activities. ii. Supporting Public‐Private Partnerships and Community Involvement: This subcomponent would help establish ONAPE, financing the updating of its operational manual, technical assistance for the operationalization of its administrative and technical units, and equipment and rental offices for its physical location. 21. Component 4. Project Management, Monitoring and Evaluation: (Appraisal: US$ 6; Actual Expenditure: US$ 12.3 million) This component would support: (a) the coordination of Project implementation by financing project management costs to implement and supervise activities, and the cost of consultancies associated with the Project Implementation Unit (PIU) and (b) activities to strengthen M&E capacity, generating monitoring reports by undertaking two waves of Early Grade Reading Assessment (EGRA) and an impact evaluation of the TWP, strengthening independent verification systems for the TWP, and supporting rural communities and DDE‐level staff in monitoring and data recording and reporting. 22. The following table summarizes resource allocations at Project closing (post restructurings, which are outlined in the section below): Table 1: Final Project Resource Allocations Activities US$, millions Component 1, of which: 55 Subcomponent 1.1 ‐ Tuition Waiver Program 48 Subcomponent 1.2 ‐ Community schools 7 Component 2, of which: 33.8 Subcomponent 2.1 ‐ Teacher training 3.5 Subcomponent 2.2 ‐ Reading instruction 3.3 Subcomponent 2.3 ‐ School Health and Nutrition Program 27 Component 3 ‐ Institutional Strengthening 1.2 Component 4 ‐ Project Management and M&E 12.3 Hurricane Matthew Emergency Reconstruction and School Feeding 2.8 B. SIGNIFICANT CHANGES DURING IMPLEMENTATION 23. There were a significant number of changes during the Project’s lifetime; it was restructured a total of six times (including twice as part of AFs) as follows: i. In August 2012, IDA grant proceeds were reallocated to incorporate a separate disbursement category. This was The World Bank Haiti - Education for All Project - Phase II (P124134) Page 12 of 101 inadvertently omitted during Project preparation for this Project Preparation Facility (PPF) expenditures. ii. In June 2014, the Project received AF in the amount of US$14.75 million from the Haiti Reconstruction Fund (HRF) to cover a gap in funding for the SHN Program, extending it by two school years (until 2017). The PDO was simultaneously restructured to make it more achievable and measurable (see below). The restructuring also triggered the application of World Bank’s Operational Policy 4.12 on Involuntary Resettlement, following the identification of a case of resettlement of six families that had occurred under the community‐based school subcomponent 1.2. Project design and selected activities were also revised and the closing date was extended by 15 months (from June 2015 to September 2016) to allow for completion of activities. iii. In October 2014, the Project received AF in the amount of US$24.1 million from the GPE to help finance the implementation of the MENFP’s transitional education sector plan ( Programme d’Interventions Prioritaires en Education PIPE), which is the subsequent education sector plan following the OPE; Project activities were scaled up as part of the AF to increase its impact. The closing date was again extended by nine months for the IDA grant, from September 2016 to June 2017. This allowed for implementation of scaled‐up and new activities. iv. In April 2015, the Project activities were adjusted to reflect revised Ministry priorities, in particular on school accreditation, and to revise the results framework. v. In August 2016, the closing date of the HRF grant was extended by nine months to align with the parent project closing date in June 2017 and to ensure the continuity of the SHN Program (planned to end during the 2015–16 school year) through the end of the 2016–17 school year. vi. In May 2017, the Project was restructured to respond to Hurricane Matthew, a Category IV hurricane that struck Haiti in October 2016. The hurricane affected over 2 million people and damaged schools. As a result, the Government requested the support of the World Bank and other development partners for the rapid reallocation of existing Project funds. This destructive event led to several adjustments (further described below) via the sixth restructuring. Project funds (US$3.5 million) were shifted away from some existing activities and redirected to newly added hurricane response activities; and the community‐based school subcomponent was adjusted to align with the MENFP’s revised strategic priorities. The closing date of the IDA and GPE grants was extended by 12 months (from June 2017 to June 2018) to allow for execution of key post‐Hurricane Matthew emergency response activities and completion of revised community‐based school activities. Revised PDOs and Outcome Targets 24. The revised PDO, as stated in the second Restructuring Paper and the Project’s Amended and Restated Financing Agreement, is to support: (a) enrollment of students in select nonpublic primary schools in disadvantaged areas; (b) student attendance in select public and nonpublic primary schools in disadvantaged areas; and (c) strengthened management of the recipient's primary education sector. 25. Therefore, the revised Project outcomes were: a. Outcome 1: Enrollment of children in nonpublic primary education is supported; b. Outcome 2: Student attendance in select public and nonpublic schools in disadvantaged areas is maintained; c. Outcome 3: Education sector management is strengthened. The World Bank Haiti - Education for All Project - Phase II (P124134) Page 13 of 101 Revised PDO Indicators 26. The revised outcomes at Project closing were measured using the following indicators. 6 Table 2: Original and New End‐of‐Project PDO‐level Indicators Outcome / Component Original PDO Indicator New Outcome / Component New PDO Indicator 1 ‐ Access Access: Number of children enrolled through the provision of tuition waivers 1 ‐ Enrollment Enrollment of students in select nonpublic primary schools in disadvantaged areas: Number of tuition waivers financed in nonpublic schools 2 ‐ Quality Quality: Percentage of children enrolled in participating schools for more than one year reading at grade level in grade 3 2 ‐ Student Attendance Student attendance in select public and nonpublic primary schools in disadvantaged areas: Attendance rate is at least maintained in schools benefitting from the SHN Program 3 ‐ Sustainability Sustainability: Percentage of community teachers financed by the Government of Haiti 4 ‐ Institutional Capacity Capacity: Percentage of schools inspected at least once per year by the MENFP 3 ‐ Sector Management The MENFP uses data on registered public and nonpublic primary schools to assess, categorize, and improve the quality of service delivery Revised Components 27. Over time, there were a multitude of changes to the Project’s components over its timeline. The major revisions are summarized below and detailed in annex 10. 28. Component 1 – Support to Primary Education Enrollment (revised from Improving Access to Quality Primary Education) 29. TWP. Since the Project financed a higher number of students than originally planned for the first two years of the project (2012–13 and 2013–14) and due to delays in funding availability from other development partners. The TWP was initially reduced but was later scaled up using GPE financing in order to provide training to TWP school directors and SMCs. Support to the last TWP cohort was then taken over by the new World Bank‐financed operation (Providing an Education of Quality in Haiti [PEQH], P155191) which became effective in March 2017. 30. Community‐based Schools. The scope of this subcomponent was reduced due to higher‐than‐anticipated unit costs of school construction. In line with MENFP low implementation capacity (lower‐than‐expected planning, construction, and supervision capacity at the community, departmental, and PIU levels), and to respond to Hurricane Matthew 7 (IDA funds originally planned for the construction of community‐based schools were mobilized toward emergency activities). Furthermore, as the GoH had not been able to assume the cost of teachers’ salaries due to financial 6 A more detailed description of the changes to PDO‐ and intermediate‐level indicators made during each restructuring can be found in annex 8. 7 Restructuring of May 2017. The World Bank Haiti - Education for All Project - Phase II (P124134) Page 14 of 101 constraints and competing priorities, the Project therefore continued financing 100 percent of community teacher salaries using funds that would otherwise have financed the continued construction of schools (as outlined in sections below, the MENFP started nominating teachers in 2017 under the new PEQH financing). 31. Hurricane Matthew Rehabilitation, Construction, Materials and School Feeding. To enable hurricane‐affected public schools to reopen as quickly as possible, schools in three of the most affected geographical departments would be rehabilitated, school furniture sets, and pedagogical kits would be distributed, and an enhanced daily SHN Program would be provided to children (further detailed in component 2 below). 32. The SHN Program. This sub ‐component was moved from component 1.3 to component 2.3 to align with the revision of the outcome linked to component 2 (improved student attendance). Changes to content the subcomponent are described below. 33. Information for Nonpublic School Accountability. This subcomponent was added in the third restructuring, financing the design and implementation of an information campaign to improve financial accountability of selected schools under the TWP and improve TWP implementation. 34. Component 2 – Support to Improved Student Attendance (revised from Support to Teaching and Learning) 35. FIA. The Project certified about 2,600 teachers. However, the Government was limited in its ability to replace unqualified teachers in public schools or require nonpublic schools to recruit them. As a result, the recruitment of a fourth cohort of FIA candidates was cancelled beginning with the 2013–14 school year. 36. M’Ap Li Net Ale . As part of the second restructuring, the Project introduced a technically improved version of the approach called M’ap Li Net Ale (I Am Reading All the Way) developed by the MENFP with the U.S. Agency for International Development (USAID). This approach would involve teacher training and coaching, student and teacher assessment, and the provision of teacher and student materials for grade 1 classes in community‐based schools and selected schools participating in the TWP. 37. Support to the Quality of Reading Instruction. The financing of the activity was taken on by USAID, the development of a teacher’s guide was eliminated from the Project in the sixth restructuring. 38. SHN Program. The second and third restructurings scaled up the provision of SHN services, filling a financing gap and providing services for primary students 8 for two additional school years beyond the original Project timeline for the (2014–15 and 2015–16) school year. The third restructuring introduced independent verification of service provision by firms under the SHN Program and provided additional funds for the introduction of fuel‐efficient stoves in selected schools. To respond to the severe food security crisis that followed Hurricane Matthew, the SHN Program was later expanded in scope and to cover children in affected areas (providing water treatment kits to prevent cholera, improved cook stoves, kitchen utensils, and additional soap and hygiene training in affected schools). 39. Component 3 – Strengthening Sector Management (revised from Institutional Strengthening and Governance) 8 The second restructuring provided services for 76,500 students in 2014–15 and 2015–16 and the third restructuring provided services for about an additional 68,000 students over four months in 2014–15 and about an additional 34,000 students in 2015–16. The World Bank Haiti - Education for All Project - Phase II (P124134) Page 15 of 101 40. ONAPE & School Accreditation. In place of supporting the ONAPE, the establishment of which had stalled following a shift in the Government’s priorities, starting with the second restructuring, component 3 would support the development of school accreditation standards, methodologies, and procedures, including by financing the National Consultative Committee for Accreditation. In the fourth restructuring, these accreditation activities were scaled back to align with refocused Government priorities and timing on school accreditation; in particular, following policy reforms in August 2014, the MENFP decided to focus its efforts on immediate measures to identify and register existing schools in Haiti as a prerequisite to schools’ accreditation. The component activities were therefore revised as school registration (and provision of identity cards) at the national level, the establishment of reconciled data on all Haitian schools, and the development and testing of tools for assessing schools against service delivery criteria. 41. Sector Studies and Pilots. The second restructuring supported thematic sector studies and pilots aimed at improving budget programming and education system accountability. In the third restructuring, funds were added to include additional studies, and new activities: the development of an annual education sector action plan, from 2014 to 2017; an assessment of the potential for creating a multi‐donor trust fund as a pooled funding mechanism for the sector; and the design and piloting of a student mentoring program for children. In the sixth restructuring, several activities were eliminated because they were not considered priorities: support to DDEs via a program‐based budget; the student mentoring pilot; the development of the annual sector action plans; and the development of an Education Country Diagnostic report and certain other thematic studies. These changes allowed the MENFP to prioritize its attention to interventions related to Hurricane Matthew, and support for the MENFP’s development of a new multiyear sector Operational Plan. 42. Component 4 – Project Management and Monitoring and Evaluation 43. This component was revised to: (i) finance an impact evaluation of M’ap Li Net Ale (rather than of Lekti se Lavni ) (ii) provide additional support to oversee Project implementation and (iii) Support the development and administration of an Early Grade Mathematics Assessment (EGMA). Other Changes 44. A number of additional changes occurred over the course of the six restructurings to align with revised objectives, components, and financing. These included changes in legal covenants, component costs, disbursement arrangements and estimates, and disbursement category reallocations, as well as changes in institutional arrangements and implementation schedule. Rationale for Changes and Their Implication on the Original Theory of Change 45. The PDO was revised to (i) better align it with new priorities, as outlined in the MENFP’s Transitional Sector Plan and (ii) reflect the intended scope of the Project. The revision addressed a misalignment between the scope of the project (enrollment) and the wording of the PDO (access). Hence, the first Project outcome was renamed from ‘access’ to ‘enrollment.’ 46. Explicit reference to quality was removed from the PDO. Quality was not clearly defined and would prove difficult to measure as there were no system‐wide learning assessments allowing regular and consistent measurement of learning outcomes in Haiti. The Project would instead focus on the impact of SHN activities on student attendance as the second Project o