Note de couverture de la requête d’un · règles internes de l’agent partenaire. Réglées au...

Note de couverture de la requête d’un

financement accéléré COVID-19 pour le Benin

CONTEXTE

Pays : Benin

Agent (s) partenaire(s) : Banque mondiale

Agence(s) de coordination : UNICEF.

Intitulé du programme : BENIN COVID-19 Education Response GPE Project.

Montant total du financement accéléré COVID-19 : 10 000 000 $US

Commissions de l’agent partenaire (en supplément du montant total du financement accéléré COVID-19 demandé)1 :

250 000 US$

Commissions de l’agent partenaire en % du montant total du financement accéléré demandé :

2,5%

Date de soumission de la requête pour un financement accéléré COVID-19 :

5/13/2020

Date estimée de démarrage du financement accéléré COVID-19 :

6/18/2020

Date estimée de clôture du financement accéléré COVID-19 (doit correspondre au dernier jour du mois, par exemple : le 30 juin 2021) :

12/31/2021

Date prévue pour la remise du rapport de fin d’exécution (au maximum 6 mois après la date de clôture du programme) :

6/30/2022

Modalités du financement - (mettre un ‘X’)

Fonds commun sectoriel

Fonds commun de projet / Cofinancement

X Projet autonome

1 Commissions de l’agent partenaire : Les commissions générales de l’agent partenaire s’ajoutent à l’AMP et sont déterminées selon les règles internes de l’agent partenaire. Réglées au siège de l’agent partenaire, elles correspondent à des frais généraux et contribuent généralement au défraiement des frais administratifs et autres charges encourues au titre de la gestion et de l’administration des fonds transférés. Ces commissions sont prédéterminées dans l’accord sur les procédures financières conclu entre l’agent partenaire et l’administrateur fiduciaire du PME.

Note à l’attention de l’utilisateur

Vérification de l’éligibilité :

➔ Avant de soumettre une requête de financement accéléré COVID-19, le Gouvernement ou

l’Agence de coordination informe le Secrétariat de l’intention du pays de présenter une requête

et fournit un calendrier pour la soumission de la requête auprès du Secrétariat.

Lignes directrices pour le financement accéléré :

➔ Les candidats doivent lire directive relatives au dépôt d'une requête d’un financement accéléré COVID-19, qui explique le processus d’élaboration de la requête, y compris le calendrier, les étapes nécessaires. Si le candidat a besoin d’informations supplémentaires, il peut contacter le responsable-pays au Secrétariat.

https://www.globalpartnership.org/content/guidelines-covid-19-coronavirus-accelerated-funding-window

https://www.globalpartnership.org/content/guidelines-covid-19-coronavirus-accelerated-funding-window

FOR OFFICIAL USE ONLY

Report No: PCBASIC0223261

INTERNATIONAL BANK FOR RECONSTRUCTION AND DEVELOPMENT AND/OR INTERNATIONAL DEVELOPMENT ASSOCIATION

PROJECT APPRAISAL DOCUMENT

ON A

PROPOSED GRANT

IN THE AMOUNT OF US$10 MILLION

TO THE

REPUBLIC OF BENIN

FOR A

BENIN COVID-19 EDUCATION RESPONSE GPE PROJECT

June 5, 2020

{Education Global Practice} {Africa Region}

OR

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

This document is being made publicly available prior to Board consideration. This does not imply a presumed outcome. This document may be updated following Board consideration and the updated document will be made publicly available in accordance with the Bank’s policy on Access to Information.

CURRENCY EQUIVALENTS

(Exchange Rate Effective {May 12, 2020})

Currency Unit = CFA

F CFA 603 = US$1

FISCAL YEAR

January 1 - December 31

Regional Vice President:

Country Director:

Regional Director:

Practice Manager:

Task Team Leader(s):

ABBREVIATIONS AND ACRONYMS

AFD French Development Agency (Agence Française de Développement) APA Alternate Procurement Arrangements AWP Annual Work Program AWPB Annual Work Plan and Budget BCEAO Central Bank of West African States (Banque Centrale des Etats de l’Afrique de l’Ouest)

BEPC Exam for the LSE Certificate (Brevet d’Etudes du Premier Cycle) CAA Autonomous Debt Centralization Department CBO/EPT Coalition Beninoise des Organisations de l’Education pour Tous CEP Primary School Certificate (Certificat d’Etudes Primaires) CERC Contingent Emergency Response Component CF Financial Control Directorate (Contrôle Financier) CM2 Sixth Grade Students (CM2) (end of primary education) COGEP School-Based Management Committees (Comité de Gestion de l’Ecole Primaire).

CP Second Grade Students (CP) CPF Country Partnership Framework CRS Catholic Relief Services

CSDM Disbursement and Procurement Monitoring Committee (Comité de suivi des Décaissements et des Marchés)

D/IGPM Director of Pedagogical Inspection and Innovation (D/IGPM) D/INFRE Director of the National Institute for Training and Research in Education (D/INFRE)

D/INIFRCF Director of the National Engineering Institute for Training and Capacity Building of Trainers (D/INIFRCF)

DAF Director of Administration and Finance

DAF/MEMP Administration and Finances Department for MEMP (Direction de l’Administration et des Finances MEMP)

DDEMP Regional Directorates of Education for MEMP (Direction Départementale des Enseignements Maternel et Primaire)

DDESTFP Regional Directorates of Education for MESTFP (Direction Départementale des Enseignements Secondaire, Technique et de la Formation Professionnelle)

DEM Directorate of Pre School (Direction de l'Enseignement Maternel) DEP Director of Primary Education DFIL Disbursement and Financial Information Letter DGB General Directorate of Budget (Direction Générale du Budget) DGES Director of General Secondary Education DGFID Investment and Development Financing DGPD General Directorates of Development Policies

DGTCP Directorate General of the Treasury and Public Accounting (Direction Générale du Budget et de la Comptabilité Publique)

DIPIQ Director of Pedagogical Inspection, Innovation and Quality

DNCMP National Procurement Control Directorate (Direction Nationale de Contrôle des Marchés Publics)

DPP Director of Programming and Planning

E&S Environment and Safeguards ECF Extended Credit Facility EMIS Education Management Information System ESCP Environmental and Social Commitment Plan ESP Education Sector Plan ESRS Environmental and Social Review Summary F CFA Franc From the African Financial Community (Franc de la Communauté Financière d'Afrique)

FCB-PME Common Budgetary Fund -GPE (Fonds Commun Budgétaire – Partenariat Mondial pour l’Education -FCB-PME

FDI Foreign Direct Investment FI Financial Intermediaries FM Financial Management

FTI-FCB Fast Track Initiative - Common Budgetary Fund (Initiative Fast-Track- Fonds Commun Budgétaire)

GAP Government Action Program GDP Gross Domestic Product GEMS Geo-Enabling Method for Monitoring and Supervision GER Gross Enrollment Ratio GIR Gross Intake Rate GIZ German Corporation for International Cooperation GoB Government of Benin GPE Global Partnership for Education GPI Gender Parity Index GRM Grievance Redress Mechanism GRS Grievance Redress Service HCI Human Capital Index HDI Human Development Index IBRD International Bank for Reconstruction and Development ICR Implementation Completion and Results Report ICT Information and Communication Technology ICWMP Infectious Control and Waste Management Plan IDA International Development Association IFRs Interim Financial Reports IGF General Inspectorate of Finance IMF International Monetary Fund IPF Investment Project Financing LEG Local Education Group LES Lower Secondary Education (Premier Cycle de l’Enseignement Secondaire Général)

LMP Labor Management Procedure LSE Lower secondary education LSS lower secondary school M&E Monitoring and Evaluation MEMP Ministry of Pre- and Primary School (Ministère des Enseignements Maternel et Primaire)

MESFTP Ministry of Secondary, Technical Education and Vocational Training (Ministère des Enseignements Secondaire, Technique et de la Formation et Professionnelle)

MESRS Ministry of Higher Education and Scientific Research (Ministère de l’Enseignement Supérieur et de la Recherche Scientifique)

MEU Monitoring and Evaluation Unit MoD Ministry of Development MoEs Ministries of Education MoF Ministry of Finance MPA Multiphase Programmatic Approach MTR Mid-Term Review NGOs Non Governmental Organizations NPF New Procurement Framework OHS Occupational, Health and Safety PA Pedagogic Advisers PAG Government Action Program

PASEC Regional Assessment for Francophone Countries (Programme d’Analyse du Secteur de l’Education de la CONFEMEN)

PBC Performance-Based Conditions PBI Performance-Based Incentives PCR Primary Completion Rate PCU Project Coordination Unit PDO Project Development Objective PIM Project Implementation Manual PP Percentage Points PPSD Project Procurement Strategy for Development PSC Project Steering Committee PTA Parent Teacher Association PTAB Annual Work Plan and Budget (Plan de Travail Annuel et Budget) PU Procurement Units SDGs Social Development Goals (SDGs) SEA-SH Sexual Exploitation and Abuse and Sexual Harassment SEP Stakeholder Engagement Plan SGM Secretary General of the Ministry SIDC Secure Identification Credentials SIP Strategic Integrated Plan SOP Series of Projects SPM Procurement Specialist (Spécialiste en Passation des Marchés) SSA Sub-Saharan Africa STEP Systematic tracking of Exchanges in Procurement STP Technical Permanent Secretariat (Secretariat Technique Permanent) ToRs Terms of Reference UATS Technical Support and Monitoring Unit (Unité d’Appui Technique et de Suivi)

UNICEF United Nations Children's Fund USE Upper Secondary Education VfM Value for Money WASH Water, Sanitation and Hygiene

WB World Bank WBG World Bank Group WFP World Food Program WHO World Health Organization

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TABLE OF CONTENTS

DATASHEET ................................................................................. Error! Bookmark not defined.

I. STRATEGIC CONTEXT ...................................................................................................... 6

A. Country Context................................................................................................................................ 6

B. Sectoral and Institutional Context .................................................................................................... 8

C. Relevance to Higher Level Objectives ............................................................................................. 11

II. PROJECT DESCRIPTION .................................................................................................. 13

A. Project Development Objective ..................................................................................................... 13

B. Project Components ....................................................................................................................... 13

C. Project Beneficiaries ....................................................................................................................... 19

D. Results Chain .................................................................................................................................. 21

E. Rationale for Bank Involvement and Role of Partners ................................................................... 22

F. Lessons Learned and Reflected in the Project Design .................................................................... 23

III. IMPLEMENTATION ARRANGEMENTS ............................................................................ 24

A. Institutional and Implementation Arrangements .......................................................................... 24

B. Results Monitoring and Evaluation Arrangements......................................................................... 25

C. Sustainability ................................................................................................................................... 26

IV. PROJECT APPRAISAL SUMMARY ................................................................................... 26

A. Technical, Economic and Financial Analysis (if applicable) ......................................................... 26

B. Fiduciary .......................................................................................................................................... 27

C. Legal Operational Policies ............................................................................................................... 29

D. Environmental and Social ............................................................................................................... 29

V. GRIEVANCE REDRESS SERVICES ..................................................................................... 31

VI. KEY RISKS ..................................................................................................................... 31

VII. RESULTS FRAMEWORK AND MONITORING ................................................................... 32

ANNEX 1: Implementation Arrangements and Support Plan .......................................... 42

ANNEX 2: Detailed project costs .................................................................................... 53

ANNEX 3- Key Education Sector Challenges Prior to the COVID-19 Pandemic ................. 56

ANNEX 4- KEY RISKS ...................................................................................................... 58

ANNEX 5: Map of Benin showing districts with a PCR lower than 50% ........................... 60

Annex 6- Detailed Implementation Plan ........................................................................ 61

The World Bank Benin COVID-19 Education Response GPE Project (P174186)

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DATASHEET

BASIC INFORMATION BASIC_INFO_TABLE

Country(ies) Project Name

Benin Benin COVID-19 Education Response GPE Project

Project ID Financing Instrument Environmental and Social Risk Classification

Process

P174186 Investment Project Financing

Low Urgent Need or Capacity Constraints (FCC)

Financing & Implementation Modalities

[ ] Multiphase Programmatic Approach (MPA) [ ] Contingent Emergency Response Component (CERC)

[ ] Series of Projects (SOP) [ ] Fragile State(s)

[ ] Performance-Based Conditions (PBCs) [ ] Small State(s)

[ ] Financial Intermediaries (FI) [✓] Fragile within a non-fragile Country

[ ] Project-Based Guarantee [ ] Conflict

[ ] Deferred Drawdown [✓] Responding to Natural or Man-made Disaster

[ ] Alternate Procurement Arrangements (APA)

Expected Approval Date Expected Closing Date

26-Jun-2020 31-Dec-2021

Bank/IFC Collaboration

No

Proposed Development Objective(s)

The proposed project's development objectives are to: (a) ensure continuity of teaching during and after the COVID -19 pandemic, particularly in deprived communes in the Recipient’s territory; and (b) increase the Government’s preparedness to mitigate the effects of future crises


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Components

Component Name Cost (US$, millions)

Component 1: Ensuring safe reopening of schools and return of students, especially in deprived communes

7.80

Component 2: Strengthening education system resilience in the medium and long term

1.25

Component 3: Ensuring monitoring, management and coordination of the project 0.80

Bank supervision cost 0.15

Organizations

Borrower: Ministry of Economy and Finance

Implementing Agency: Ministry of Pre and Primary Schools

PROJECT FINANCING DATA (US$, Millions)

SUMMARY-NewFin1

Total Project Cost 10.00

Total Financing 10.00

of which IBRD/IDA 0.00

Financing Gap 0.00

DETAILS -NewFinEnh1

Non-World Bank Group Financing

Trust Funds 10.00

Education for All - Fast Track Initiative 10.00

INSTITUTIONAL DATA Practice Area (Lead) Contributing Practice Areas

Education


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SYSTEMATIC OPERATIONS RISK-RATING TOOL (SORT)

Risk Category Rating

1. Political and Governance ⚫ Moderate

2. Macroeconomic ⚫ Moderate

3. Sector Strategies and Policies ⚫ Moderate

4. Technical Design of Project or Program ⚫ Moderate

5. Institutional Capacity for Implementation and Sustainability ⚫ Moderate

6. Fiduciary ⚫ Moderate

7. Environment and Social

8. Stakeholders ⚫ Low

9. Other

10. Overall ⚫ Moderate

COMPLIANCE

Policy Does the project depart from the CPF in content or in other significant respects?

[ ] Yes [✓] No

Does the project require any waivers of Bank policies?

[ ] Yes [✓] No


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Environmental and Social Standards Relevance Given its Context at the Time of Appraisal

E & S Standards Relevance

Assessment and Management of Environmental and Social Risks and Impacts

Stakeholder Engagement and Information Disclosure

Labor and Working Conditions

Resource Efficiency and Pollution Prevention and Management

Community Health and Safety

Land Acquisition, Restrictions on Land Use and Involuntary Resettlement

Biodiversity Conservation and Sustainable Management of Living Natural

Resources

Indigenous Peoples/Sub-Saharan African Historically Underserved Traditional

Local Communities

Cultural Heritage

Financial Intermediaries

NOTE: For further information regarding the World Bank’s due diligence assessment of the Project’s potential environmental and social risks and impacts, please refer to the Project’s Appraisal Environmental and Social Review Summary (ESRS). Legal Covenants

Conditions


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I. STRATEGIC CONTEXT

1. School closures due to COVID-19 will negatively impact education outcomes in Benin and affect its Human capital index. The first confirmed COVID-19 case in Benin was announced on March 16, 20202.Specific measures have been taken by the Government of Benin to manage the COVID-19 outbreak, including school closures from March 27 to May 10, 2020. Even before the COVID-19 pandemic, Benin was facing a learning crisis and considerable geographic and social disparities in the provision and quality of education services. The Human Capital Index (HCI) scores, which measures the productivity of people given their health and education, is currently 41 percent for Benin3 . This ranks Benin at 125th out of 157 countries worldwide and 14th of 39 Sub-Saharan countries included in the HCI. School closures will further deteriorate education outcomes for children if actions are not urgently implemented. Immediate action is therefore required to ensure continuity of teaching and during and after the COVID-19 pandemic.

2. The Global Partnership for Education (GPE) has allocated a notional amount of US$ 10 million4 to Benin, from the GPE COVID-19 accelerated funding window. This accelerated funding window is designed to provide governments with the financing and technical resources required to mitigate the negative impact of COVID-19 pandemic on their education systems and to support recovery efforts in their country.

A. Country Context

3. Benin is a small West-African coastal country with a predominantly young, and rapidly growing, population. Estimated at 11.80 million in 2019, up from the 2013 census population of 9.98 million, the population is growing at a rapid rate of approximately 3 percent per year5. The population is young, with a median age of 18.2 years. With about 42.5 percent of the population under the age of 15, Benin ranks among the top 25 countries worldwide in terms of the largest percentage of young people6. This proportion rises to 63 percent for those under the age of 25. The labor market is also under extreme pressure as approximately 200,000 young people reach working age each year7. 4. Despite Benin being one of the fastest growing economies in Sub-Saharan Africa (SSA), with growth averaging 6.3 percent in 2017-2019, the poverty rate remains high at 45.4 percent in 2019 (US$1.9 a day threshold, 2011 PPP). Growth in recent years has been mainly driven by booming cotton production, and strong construction and port activity following a series of reforms that improved port management and facilitated trade. An important feature of Benin’s economy is the strong economic and trade linkages with Nigeria (e.g. more than half of exports in 2018). This relationship has aided Benin when Nigerian growth has been robust, but it has also increased risks and limited the structural transformation of the economy. As a result, aside from agriculture, the economy is dominated by informal commerce and trade. The low-productivity informal economy represents 65

2 As of June 3, 2020, Benin reported 261 cases of COVID-19. Of the confirmed cases, 109 cases are still active, 148 cases recovered (and patients have since been dispatched), and 4 cases have resulted in death. 3 This means that a child born today will only be 41 percent as productive as she/he could be if she/he enjoyed complete education and full health 4 This amount includes the Bank supervision cost. 5 United Nations, Department of Economic and Social Affairs, Population Division (2019). World Population Prospects: The 2019 Revision. 6 Benin ranks 22 out of 217 in terms of percentage of the population with an age under 15 (World Bank staff estimates based on age/sex distributions of United Nations Population Division's World Population Prospects: 2019 Revision). 7 INSAE, State of Employment in Benin (August 2017).


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percent of Gross Domestic Product (GDP) and employs approximately 90 percent of the labor force.8 Consequently, poverty and poor human capital results remains a defining characteristic of Benin. 5. Facing two external shocks, Nigeria’s border closure since August 2019, and the negative effects of the COVID-19 pandemic, Benin’s growth will be challenged in 2020. Economic activity remained robust in 2019 with real GDP growth reaching 6.9 percent in 2019 (4 percent per capita) as manufacturing and services picked up, compensating for the fall in exports due to the border closure with Nigeria. However, due to the combined effect of the COVID-19 pandemic and protracted border closure, growth is expected to sharply drop to 3.2 percent in 2020. Benin has one of the lowest levels of tax-revenue to GDP in SSA, amounting to 10.6 percent in 2019, rapidly limiting its response capacity to external shocks.

6. A protracted COVID-19 crisis is likely to substantially reduce household income, possibly undermining some of the welfare gains of recent years. In 2019, 44.5 percent of the population was estimated to live under the poverty line of US$1.9/day (2011 PPP) based on World Bank projections. Under the baseline scenario, with real GDP per capita only increasing by 0.5 percent in 2020, poverty reduction decelerates significantly from an annual pace of about 3 percent in the previous two years to virtually zero in 2020. More alarming, poverty rates reach pre-2016 levels under the downside scenario in 2020, as real GDP per capita declines by 1 percent and growth in agriculture and services is hampered, reverting recent gains in poverty reduction. Poor households will be primarily affected by a loss of labor and non-labor income.9 The expected effects of containment measures on food prices will also be particularly detrimental for vulnerable households. Further, on top of these traditional channels are the added shocks linked to health, the disruption of public service delivery (e.g. school feeding programs), and the medium-term impact of the sale of productive assets. The latter would have negative repercussions on human capital accumulation in the long term. The GoB’s National Response Plan should help mitigate these negative effects. 7. Anticipating the large economic and social impacts of COVID-19, authorities have requested technical and financial support from International Financial Institutions (IFIs). On May 15, 2020, the IMF Executive Board completed the 6th and final review of the Extended Credit Facility (ECF) Arrangement. The completion of the sixth review enabled the disbursement of SDR 91.931 million (about US$125 million); of which SDR 76.013 million (about US$103.3 million to support the COVID-19 response as requested by the Government. The World Bank, in turn, is supporting the health sector through three ongoing operations10 (US$138million) and is preparing rapid budget support program though Supplemental Financing (US$50 million)11. Despite these commitments, the financing gap remains large.

8. Progress towards the education-related Social Development Goals (SDGs) has been steady but achieving the envisaged targets will require a more rapid rate of progress than those observed during the previous decade. Achieving universal completion rates and gender parity are two key aims of the SDGs. Improvement in the primary completion rate (PCR) has been too slow in recent years (65 percent in 2005/2006 vs. 67.5 percent in 2017/2018) to put the country on track to achieve universal primary completion. Similarly, although there is

8 Systematic Country Diagnostic 2017, Report 114822-BJ. 9 If low as a share of GDP (1.9 percent in 2019), remittances tend to represent a significant share of poor household income. 10 The three operations are: Regional Disease Surveillance Systems Enhancement Program (REDISSE), CERC of Nutrition Project and Benin COVID-19 fats-track project. 11 The proposed Development policy Operations (DPO) provides an additional funding of US$ 50 million for the first Fiscal Reform and Structural Transformation to help the Government of Benin fill an unanticipated financing gap due to the impact of COVID-19 outbreak.


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progress on gender parity in lower secondary education—with the gender parity index (GPI) increasing from 54.5 percent in 2005/2006 to 88.1 percent in 2017-2018—additional efforts are needed to achieve equal access for girls and young women across all levels of education.

B. Sectoral and Institutional Context 9. Benin’s general education system is divided into four levels and there are approximately 3 million students in basic education. The four levels include a: (i) two-year preschool cycle for four and five-year-old; (ii) six-year primary cycle beginning at age six; (iii) seven-year secondary education cycle, consisting of a four-year lower level leading to a college certificate, and a three-year upper level leading to a Baccalaureate diploma; and (iv) higher education system that provides bachelors, masters and doctorate degrees (some private institutions provide two-year certificate programs). Since the approval by the Government of the new Education Sector Plan (ESP) 2018-2030 in June 2018, basic education encompasses pre-school to lower secondary education with an overall duration of 12 years. There is also non-formal basic education which consists of alternative forms of education and apprenticeship schemes for pre-professionalization. Only primary school enrollment and attendance are compulsory. As shown in Table 1, the number of students enrolled in pre-primary, primary, and lower general secondary school in the 2019-20 school year is about 3.0 million. Private schools’ students account for 25.5 percent and 16.5 percent in primary and lower secondary schools, respectively. Table 1 Enrollment by education level (public and private) for the 2019-2020 SY

Level of education Number of schools Number of students Number of teachers

Pre-primary* 2,828 156,218 3,518

Primary* 11,090 2,182,724 56,813

Lower secondary 1,750 641,071 15,547

Total 15,668 2,980,013 75,878 *Provisional data Source: Provisional statistical yearbooks of MEMP and MESTFP-Benin

10. The education sector is managed by three ministries: (i) Ministry of Pre- and Primary School (Ministère des Enseignements Maternel et Primaire, MEMP); (ii) Ministry of Secondary, Technical Education and Vocational Training (Ministère des Enseignements Secondaire, Technique et de la Formation et Professionnelle, MESFTP); and (iii) Ministry of Higher Education and Scientific Research (Ministère de l’Enseignement Supérieur et de la Recherche Scientifique, MESRS). The first two ministries each have 12 regional directorates. For the MEMP, at the decentralized level, there are 85 primary school districts consolidated into 45 sub-regional school inspectorates, each led by an inspector who is assisted by educational advisers. 11. Starting in October 2016, the Government has extended its school feeding program in order to increase equitable access to and retention in primary education. To reduce the burden for households, school fees were abolished in 2006 for all pre-primary and primary school students, as well as for girls enrolled in lower secondary schools. A public financial compensation program—aimed at counterbalancing the loss of resources for schools—has been put in place. In addition, considering that school canteens can contribute to improve school attendance, learning outcomes and good nutrition for children, the Government has been supporting 3,852 schools by providing one meal to each child per day. This program complements the meals which are already provided by the Catholic Relief Services (CRS) in 143 supported schools. The management of this feeding program has been


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delegated to the World Food Program (WFP). About 684,059 students, representing approximately 41.2 percent of public primary school students, have been fed by school canteens. Students fed through the WFP initiative, pay approximately 25 FCFA (about US$0.05) per day, representing about US$7.5 per school year. This implies a significant cost for households, particularly for families from the lower economic quintiles. 12. The World Bank is also financing School Feeding and Nutrition in 10-12 communes of the country, as well as supporting initiatives aimed at increasing girls’ empowerment. The Early Years Nutrition and Child Development Project financed by the Bank is supporting “Integrated Primary School Feeding and Nutrition” in 10-12 communes in developing a home-grown school feeding (HGSF) program for 125 primary schools comprising an average of 25,000 school children per year, to alleviate short-term hunger in undernourished school children, incentivize parents to enroll their children in school, and increase community involvement. The Bank-financed Sahel Women’s Empowerment and Demographics Project (SWEDD) has a subcomponent supporting “empowerment of women and girls” that will provide learning opportunities for girls aged 14 to 18 and economic opportunities for young girls aged 18 to 24 who are either out of school or unemployed. Support will be particularly targeted to girls from families living in extreme poverty. 13. Tangible progress has been made in increasing access to basic education as shown in Table 2, even if the trend decreased from 2016.

Table 2: Evolution of Gross Enrollment Ratio (GER) and Completion Rate in Basic Education (in percent) from 2011 to 2019

Gross Enrolment rate (GER) Completion rate

2010/11 2015/16 2018/19 2010/11 2015/16 2018/19

Preschool 11.6 15.6 16.8 n.a. n.a. n.a.

Primary school 114.5 115.4 108.3 69.6 71.3 54.8

Lower secondary school 62.9 70 50.1 40.8 44.4 40.9 Source: DPP/MEMP and DPP/MESTFP-Benin

14. Despite achievements in terms of increased access to education, there are persistent and considerable geographic and social disparities in the provision and quality of primary education services. The 12 regions (see map in Annex) of the country can be classified into four groups with regards to Gross Intake Rate (GIR) and Primary Completion Rate (PCR). The first group includes the Alibori region where the primary GIR (35 percent) and PCR (24 percent)12 are particularly low. The second group includes the Atacora and Borgou regions, which both have an average primary GIR of 68 percent and a PCR of 56 percent and 47 percent, respectively. The third group is comprised of Atlantique, Collines, Couffo, Donga, Plateau and Zou regions, where the primary GIR is between 80 and 90 percent and the PCR between 56 and 65 percent. The fourth group includes the regions of Littoral, Ouémé, and Mono, which had a relatively high primary GIR of 97 percent and a high PCR of 73 percent. According to the 2016 statistical yearbook, there are 20 deprived school districts with a PCR below 50 percent. A total of 11 out of the 20 deprived school districts, are in the Alibori and Borgou regions.13 15. The gender gap widens as students move through the education system. Although the difference in

12 The source for access rates used here is EMICOV 2015. 13 All six of the districts in Alibori and five out the eight districts in Borgou, are classified as deprived according to the 2016 statistical yearbook.


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enrollment rates and completion rates between boys and girls at the primary level is relatively small (PCR is 66 percent for girls vs. 71 percent for boys), the gender gap widens as students move through the education system, with girls’ enrollment consistently lagging behind that of boys. Indeed, while the intake rate for girls is 62 percent and 70 percent for boys in Lower Secondary Education (Premier Cycle de l’Enseignement Secondaire Général, LSE), completion rates are only 39 percent for girls and 51 percent for boys. 16. Key education sector challenges prior to the COVID-19 pandemic are described in detailed in Annex 3.

The COVID 19 Challenges 17. As part of its response to the COVID-19 pandemic, the Government of Benin decided to close all schools (preschool, primary, secondary, vocational education, and universities) through May 10, 2020. Initially, on March 24, 2020, the Government decided to close schools from March 30 to April 13, 2020. Given the rapid spread of the virus, the Government subsequently extended school closures until May 10, 2020. Consequently, about 16,000 schools (all levels of education combined) were closed, affecting more than 3.3 million students and 88,000 teachers. Pursuant to the Government’s recent decision: (i) schools re-opened on May 11 for grade 6 and secondary level students; and (ii) grades 1 to 5 students are expected return to schools from August 4 to September 11 in order to complete the 2019-2020 school year. 18. The COVID-19 pandemic is expected to negatively impact the education sector in a number of ways:

• Spending on the education sector could also be affected, thus impacting quality of education. In recent years, total expenditures (recurrent and capital) for education have averaged 28 percent of government expenditures (excluding debt service), representing about 4.3 percent of GDP. The financial prioritization of the education sector has been crucial to: (i) support extension of school canteens program; (ii) provide textbooks and learning materials for basic education; and (iii) recruit new teachers, among others. Because the COVID-19 pandemic will likely to reduce economic activity and growth, Government revenues are also expected to dramatically drop. Given fiscal constraints that may result from the crisis, the teaching environment may worsen because non-salary expenditures, which are already low, could be further reduced (it is unlikely that the Government would lower spending for salaries). Expenditures for textbooks, learning materials, or infrastructure improvements could decline, worsening the quality of education provided.

• School closures are expected to lead to learning loss and increased inequality. Learning poverty has existed before the COVID-19 pandemic. The closure of schools will not only exacerbate learning poverty, but also increase learning inequality because the wealthiest families will be able to maintain their children’s learning at home by providing textbooks and other learning materials or hiring private tutors to mitigate any interruption in instruction. Therefore, once schools re-open, some children will find themselves at a disadvantage compared to their better educated peers.

• Student dropout rates could rise, negatively impacting the primary completion rate, as well as transition rates to secondary education. Because the COVID-19 pandemic has resulted in a severe economic crisis, households are facing rising unemployment and income losses: these trends will likely continue once school sessions resume. The economic downturn may cause the poorest households to keep children at home even after school re-opens, increasing the number of out-of-school children. Therefore, the PCR


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will likely decrease, putting the country off-track to achieve the education SDGs. In addition, parents’ ability to contribute to educational inputs may also be more limited, impacting the quality of schooling provided.

• School closures may also disproportionately impact girls. The crisis could lead to an increase in the burden of care-related tasks. Girls may often be expected to take on additional responsibilities due to social expectations, such as household and domestic chores. In economically disadvantaged areas, girls tend to marry and have children early. Additional barriers to girls’ school participation and retention include poverty and high school fees, poor infrastructure and distances to schools, unsafe learning environments, and increased exposure to violence and sexual harassment or abuse.

• Teaching quality will likely suffer. The increase in food prices may lead to lower purchasing power of teachers, which in turn, may reduce teachers’ motivation and the teaching quality. In addition, teachers are not trained to conduct remedial education.

19. In this context, maintaining and/or increasing enrollment rates once schools re-open would require several actions: communications and awareness-raising campaigns; reduction of the opportunity cost of schooling for poorer families; actions to secure safe and inclusive schools; etc. 20. To mitigate the impact of the COVID-19 the Government prepared an education response plan. Following school closures, a sector response task force, including education partners, has been put in place to strengthen the education sector’s ability to effectively mitigate—as well as address—the negative impacts stemming from the COVID-19 pandemic. The response plan primarily aims at: (i) minimizing the adverse effects of COVID-19 pandemic on students, teachers and the education system at large; and (ii) enhancing the capacity of the MoEs and stakeholders to promote protection of students and teachers and ensure continuity of teaching. It represents an opportunity to build the core foundation required to foster improvements in the quality of the teaching and learning environment in Benin in the short term, as well as in the medium and long-term. This will entail building robust remote learning systems and building the capacity of the Government—and by extension the education sector—to adequately deal with potential shocks and crises in the future. The planned activities include, distance learning through radio, TV, messages and digital solutions (like online learning), and specific and targeted support to ensure mobile phone accessibility is improved in order to reach a larger number of students. In this context, in early April 2020, the MoEs put in place teams for the preparation of broadcast lessons for students in exam classes (both in primary a secondary education). Because many of these initiatives are being implemented for the first time in Benin, technical assistance has been recruited to help the Government roll out some of these activities. In particular, in the first week of May 2020, lesson plans were delivered to primary school schools via radio to ensure the maximation number of students were able to benefit. Since re-opening of classrooms for some students began on May 11 2020, this experience will be considered as pilot and will help to draw a number of important lessons which will subsequently be used to refine these radio-instruction programs. However, the important lesson learned with the COVID-19 pandemic has been the need of the country to be more prepared and ready to anticipate and cope with future shocks to the education sector.

C. Relevance to Higher Level Objectives

21. The proposed Project is closely aligned with the 2019-2023 Country Partnership Framework (CPF) and contributes to the development of human capital. Specifically, the proposed Project will directly contribute to


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the 2019-2023 CPF’s strategic Focus Areas 2—Building Human Capital—one objective of which is to improve the relevance of education and professional training in order to improve the technical capacity of the labor force. The proposed Project will also contribute to the Human Capital Project. First, by protecting students from the impact of the pandemic, and subsequently, by ensuring continuity of learning. Efforts will also be made to further build the resilience of the education sector in order to minimize the negative impacts of potential shocks in the future. Ultimately, the proposed Project will strive to provide children in Benin with continued access to education during, and following, the COVID-19 pandemic.

22. The Education COVID-19 Response Project is fully aligned with the Government Response plan both at the national and sector levels. The Government of Benin has developed a National Education COVID-19 Response in joint collaboration with all donors. The plan primarily aims to:(i) support the continuity of learning; (ii) anticipate measures to be taken towards schools re-opening and supporting safe practice in schools; and (iii) reinforce system resilience. The proposed Project is designed on the basis of the Government’s COVID-19 Action Plan, aiming to support, along with the other development partners, the client’s emergency response to this pandemic. At the national level, the Government of Benin has developed a National COVID-19 Preparedness and Response Plan. The proposed Project’s design takes into consideration the measures described under each of the five strategic pillars outlined in the National Action Plan: (i) country-level coordination, planning, and monitoring; (ii) risk communication and community engagement; (iii) surveillance, rapid response teams, cases investigation and entry points; (iv) equipment of national laboratory with necessary machines for diagnosis tests; and (v) case management, infection prevention and control. As indicated in paragraph 40 below, other development partners from the Local Education Group, led by UNICEF, are also expected to help finance the Government’s COVID-19 Action Plan.

23. The WBG remains committed to providing a fast and flexible response to the COVID-19 epidemic, utilizing all WBG operational and policy instruments and working in close partnership with Government and other agencies. The proposed Project will be the Bank’s first intervention to respond to the COVID-19 impact on the education sector in Benin. This COVID-19 response is closely aligned with the proposed WBG response to COVID-19 in Benin which includes emergency financing, policy advice, and technical assistance, building on existing instruments to support the Government of Benin in addressing the health sector and broader development impacts of COVID-19. Improving Benin’s economic and development trajectory after COVID-19 will require increased focus on improving its human capital outcomes and addressing disparities in poor and remote areas, especially in the country’s deprived disadvantaged communes. 24. The World bank has established itself as a trusted partner, with a comparative advantage anchored in its longstanding presence in the policy dialogue, high-quality analytical work and technical support, breadth of financial instruments, convening power, and capacity to forge partnerships. The Bank is recognized as an effective partner in addressing vulnerability, including through innovative work in social protection (through the national registry and expanding safety net) and climate change mitigation. The WBG’s diagnostics, policy reform initiatives and investments have helped to create a more level playing field, improved sector governance, and bolstered domestic growth and development in client countries around the world. This pandemic also provides the Bank with the opportunity to drawn upon its recent experience supporting governments across the African continent in the fight against the Ebola virus. Many of the lessons learned from that emergency response will be highly relevant in the context of the COVID-19 pandemic as well. The Bank will also use its convening power to support this emergency response in a very agile and effective manner.


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II. PROJECT DESCRIPTION

A. Project Development Objective

PDO Statement The proposed project’s development objectives are to: (a) ensure continuity of teaching during and after the COVID -19 pandemic, particularly in deprived communes in the Recipient’s territory; and (b) increase the Government’s preparedness to mitigate the effects of future crises.

PDO Level Indicators

25. Progress towards achievement of the PDO would be measured by the following indicators:

• Share of children previously enrolled in schools who return to school once the school system is re-opened (Total, girls and deprived communes %);

• Percentage of schools equipped with minimum hygiene standards for prevention of COVID-19;

• Percentage of schools offering remediation programs in deprived communes once the school system is re-opened (total, primary schools);

• National strategy for continuity of learning for all children developed and disseminated.

B. Project Components

26. To maximize the impact of the project, the Government and Local Education Group (LEG) decided to focus part of the project interventions on deprived communes which are communes with the primary completion rate lower than 50 percent because the demand for education is very fragile in these communes, and could be further negatively impacted by the COVID-19 pandemic. Based on this criterion, 20 out of the 77 communes in the country were selected (see map in annex 5). The number of students in these 20 communes represents in 2020, 20.percent ofprimary students in public schools and 13.1 percent of lower secondary students in public schools. Interventions focusing only on deprived communes are under subcomponent 3 of the component 1. All other interventions are countrywide.

Component 1: Ensuring safe reopening of schools and return of students, particularly in deprived communes (US$7.8 million)

27. Disruptions to instructional time in the classroom can have a severe impact on a child’s ability to learn. The longer marginalized children are out of school, the less likely they are to return. Children from the poorest households are already almost two times more likely to be out of primary school than those from the richest quintile14. Being out of school also increases the risk of teenage pregnancy, sexual exploitation, child marriage, violence, among other threats. Further, prolonged closures disrupt essential school-based services such as immunization, school feeding, and mental health and psychosocial support, and can cause stress and anxiety due to the loss of peer interaction and disrupted routines. These negative impacts are likely to be significantly higher

14 Source : Note d’analyse sectorielle du système d’éducation et de la formation


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for marginalized children, such as those living in deprived communes and children living with disabilities.

28. The proposed Project will support the Government of Benin’s plans for re-opening schools and keeping learners safe. In this regard, the re-opening of schools must be done by taking a number of essential measures to ensure the safe return of as many pupils as possible, especially pupils from deprived communes. To achieve this, Component 1 will support: (i) community mobilization activities; (ii) provision of water, sanitation and hygiene (WASH) to ensure schools have appropriate hygienic measures in place for students and teachers; (iii) provision of grants to schools to encourage disadvantaged students to return; and (iv) remedial programs for students at risk of repetition and drop-out.

29. Sub-component 1.1 Media campaign and community sensitization for returning to school and disease control and prevention. This sub-component will support community sensitization and communication by financing community awareness campaigns within the communities through local community organizers and facilitators as well as radio/television campaigns to encourage parents and communities to send children back to school and maintain good hygiene practices during and after the COVID-19 pandemic. Activities to be supported under this sub-component include: (i) back-to-school media campaigns through community awareness and mobilization campaigns that target political and administrative officials, Parent Teacher Associations (PTAs), teachers and school leaders, and School-Based Management Committees (Comité de Gestion de l’Ecole Primaire—COGEPs); (ii) gender sensitization campaigns that focus on girls at risk of dropping out, as well as measures to prevent gender-based violence, and issues related to unequal social norms; (iii) media campaigns for disease control and prevention to educate community members, teachers, students, and parents, on disease prevention, by financing radio/television campaigns to encourage good hygiene practices during and after the crisis and to ensure safety for all; and (iv) a campaign, using community organizers/facilitators to mobilize communities and parents associations (PTAs) to strengthen communication and support for teachers and students as they re-enter school.

30. Sub-component 1.2: Ensuring schools are safe for re-opening. This sub-component will support: (i) WASH activities to ensure safe water, adequate sanitation, and hygiene education in schools; and (ii) the provision of hygiene kits. Most of these activities will be financed by providing grants to schools using the established school grants mechanism set up under the Government budget. It is also expected that UNICEF will play an active role in providing the installation of WASH facilities. Activities under this subcomponent include:

(i) Provision of hand washing facilities. Given to its comparative advantages, by utilizing resources allocated

to this proposed Project, UNICEF will be responsible for providing schools with hand-washing stations. A

contractual agreement between the Bank and UNICEF will be signed so that the latter institution can carry

out this activity using the resources allocated to this proposed Project. These hand-washing stations will

be installed at the entrance of each classroom and administrative office. A total of 27,630 hand-washing

devices will be purchased by UNICEF and distributed as follows: 2,880 for preschools; 19,950 for primary

schools; and 4,800 for lower secondary school (LSS). Schools which enrolled students with disabilities will

be prioritized in the distribution of the hand-washing devices.

(ii) Provision of hygiene kits, soap, masks and water. Grants provided by the Government in pre-and-

primary schools and tuition fees collected in LSS will be used to acquire hygiene kits and soap where

needed, as well as hand washing kits to schools that need the kits. The proposed Project will also provide


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grants to approximately 3,000 primary schools and 225 LSS. These grants will be used to introduce

alternative measures for ensuring permanent availability of water for handwashing devices in schools

without water points15. The proposed amount of the grant for each school is estimated to be on average

US$250 and US$400 for primary and LSS, respectively. The actual amount to be allocated to schools will

depend on the distance to be traveled to access the water point. In addition, the grants can be used to

acquire masks for teachers and school administrators, particularly for those that are most vulnerable to

the virus, in case where the ones promised by the Government have not been delivered on time.

(iii) Support for school infirmaries. School grants can be used to provide infirmary staff with training on good

hygiene practices and prevention measures to curtail the spread of the virus. This may include training on

identification of symptoms, provision of thermoflash (thermometer with infrared ray), surgical masks, etc.

The number of school infirmaries is 46 in LSS16. Each targeted school is expected to receive about US$470.

31. Sub-component 1.3: Ensuring continuity of learning and tracking of student progress. Prior to schools’ closures, much of the annual academic programs were delivered to learners. Despite academic programs being advanced, ensuring teaching and learning continuity is crucial to prevent learning losses and to reduce the risks of students dropping out. This component will: (i) support remedial programs for students at risk of repetition or dropping out; and (ii) provide subsidies to schools, through grants, to offset the cost of schooling in deprived communes; and (iii) support teachers as schools re-open. Activities under this sub-component will include the following:

(i) Provision of remedial (catch-up) programs for students at risk of repetition and dropping out in all

grades of primary (grades 1 to 6) and grade 10 of lower secondary schools in the 20 deprived communes, particularly students with learning disabilities. To plan for learning recovery at the re-opening of schools, learning gaps and learning loss will need to be assessed in key disciplines among grades 1 to 5 students17. The identification of students will apply to both public and private specialized schools for children with disabilities. Once identified, these students, along with those students in grades 6 and 10, will be provided with remedial programs to help them catch-up on grade level material. The remedial programs already exist and are currently offered to grade 6 students preparing for the final primary exam. To achieve this, the project will: (i) provide resources to regional directorates to conduct rapid assessments of grades 1-5 students’ knowledge to identify at risk students for remedial programs; and (ii) provide grants in an amount of US$200 to approximately 1995 schools (of which 1175 LSS), including 120 schools enrolling students with disabilities to cover internal travel cost of teachers on non-working days/hours to extend remedial programs to all grades of primary and grade 10 of lower secondary schools in the 20 deprived communes.

(ii) Improving pedagogic practices in classrooms in the deprived communes. The proposed Project will also provide support practical training for teachers to regularly assess students learning lags in order

15 The Government has an ambitious program to provide universal access to water supply in both urban and rural areas by 2021. The program is under implementation. Discussions are underway with government agencies coordinating this program in order to set up connections with schools without water points in areas of interventions of project when possible. Currently, the coverage of water point is 46 percent and 76.5 percent for primary and secondary schools, respectively. 16 There are no school infirmaries in primary schools 17 Schools have already been reopened for other grades in basic education.


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to determine which areas of the curriculum will need the most work and pedagogical techniques to close gaps. The teacher training will also include: (a) classroom management in order to better monitor children at risk and to effectively deliver the remedial programs; and (b) accelerated programs to better guide children in order to mitigate loss of learning during school closure. The project will also support the design of the training modules and the training of trainers. About 7,100 primary teachers and 2,820 lower secondary teachers (in key disciplines) will benefit from this training that will last three days.

(iii) Compensation of part of incidental costs paid for school canteens in deprived communes. Schools grants can also be used to provide subsidies to primary schools to run canteens in deprived communes, thereby reducing the cost to parents and students of running the canteens which may prevent disadvantage students from returning to school. The grants will cover three-fifth (3/5) of amount paid by parents in school canteens: 2,475 F CFA (about US$4.5) per student. The estimated number of students concerned is 220,000.

(iv) Provision of school kits for deprived communes. The proposed Project will support the provision of school kits for both public and specialized schools for children with disabilities, comprised of school supplies and textbooks for grades 1 and 2 students in nine18 (9) deprived communes. Specifically, girls in grades 7 and 8 (2 first grades of lower secondary schools) in the 9 communes19 will also receive school kits, including textbooks in two key disciplines. The content of kits for each grade already exists. The estimated number of students receiving these kits are 72,500 and 16,500 in primary and secondary schools, respectively. About 800 children with disabilities will also receive these kits. The unit amount of the kits is about US$ 10, US$20, and US$ 40 for primary, secondary and disabilities students, respectively. UNICEF is expected to lead the implementation of these activities with additional resources from the current project, given their ongoing programs related to provision of kits including school supplies and uniforms, in close collaboration with the Bank and other donors, in 3 out of the 12 regions of the country: Borgou, Alibori, and Zou.

Component 2: Improving preparedness to mitigate the effects of future crises(US$1.3 million)

32. Component 2 aims to support the Government’s efforts to strengthen the education system’s resilience in the medium and long term. Benin remains vulnerable to shocks: The 2017 World Risk Report ranked Benin 25th out of 171 countries in terms of risks related to natural disasters, and 11th in terms of lack of adaptive capacities.20 Therefore, sustainable remote learning opportunities will need to be expanded to mitigate the negative effects of potential school closures in the future. Further, capacity building measures need to be in place at all levels of the education service delivery chain to ensure schooling and learning continuity and to mitigate the negative effects of potential shocks in the future. Component 2 includes two sub-components: (i) expanding sustainable remote learning opportunities; and (ii) building capacity to mitigate the effects of the crisis and anticipate future shocks in the education sector.

18 The ongoing GPE project has been supported other 11 deprived communes in close collaboration with UNICEF. 19 UNICEF has been provided kits for grades 7 and 8 girl students in the 11 deprived communes. 20 The World Risk Index is calculated based on exposure to five types of natural hazards (Earthquakes, cyclones, floods, droughts, and sea-level rise); vulnerability on the basis of infrastructure/food supply/economic conditions as well as coping and adaptive capacities, which depend on governance, preparedness/early warnings, healthcare, social and material security. http://weltrisikobericht.de/wp-content/uploads/2017/11/WRR_2017_E2.pdf

http://weltrisikobericht.de/wp-content/uploads/2017/11/WRR_2017_E2.pdf

http://weltrisikobericht.de/wp-content/uploads/2017/11/WRR_2017_E2.pdf


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33. Sub-component 2.1: Expanding sustainable remote learning opportunities. Expanding remote learning is the primary goal of sub-component 2.1. The proposed Project will support the Government’s goal of be establishing and mainstreaming distance learning systems and programs. This sub-component supports the following activities:

(i) Setting up the enabling environment for distance learning: The proposed Project will support the development of partnerships between Ministries of Education and national radio and TV stations, as well as community radios and other local radios, to facilitate the broadcasting of distance learning courses. To enable the production of high-quality audio, visual and digital education content, a production room will be equipped with the necessary material. The launch of the soon to be finalized global digital distance learning education platform21 will also be supported by the proposed Project.

(ii) Supporting teachers: To ensure effective remote learning, teachers need to be adequately trained in

distance teaching methods or other alternatives forms of training which do not conform to the traditional face-to-face teaching modality. Training teachers in digital skills, in a context where teaching may increasingly involve the use of technological tools, is also essential. The number of teachers to be trained is estimated to be 1,000, of which 400 will be LSS teachers. An electronic tablet will be provided to each teacher involved in the training and a tracking system will be put in place to locate these devices and track their proper use. The proposed Project will also assess digital support needs and provide that digital support for the implementation of the Teacher Professional Development Plan. The proposed Project will also pilot the concept of blended classes, i.e. classes that combine distance learning with face-to-face lessons, in a small sample of classrooms.

(iii) Developing distance learning contents: Teachers trained will develop remote, distance learning

programs, as well as self-learning materials to be used mainly in cases of other shocks in key disciplines. The proposed Project will finance a pilot production of quality audio, visual and digital media as well as self-learning workbooks and other materials, including for children with learning difficulties and children with disabilities, to ensure equity in education and learning.

34. Sub-component 2.2. Building capacity to anticipate and cope with future shocks in education. The objective of sub-component 2.2 is to build the capacity of the key education actors (from national level to school level) to be better prepared to cope with any future crises that may result in school closures or may lead to other detrimental effects on the education system. In other words, the objective of this sub-component is to build the overall resilience of the education system in Benin. Sub-component 2.2 supports the following activities:

(i) Setting up an enabling policy framework: : The proposed Project will support an evaluation of COVID-19 education management; what has been done during the COVID-19 crisis and how it could have been done better. Establishing policies and good practices on how to maintain and/or improve teaching and learning during times of crisis is essential to ensure the resiliency of the education system is strengthened. These efforts should strive to draw upon the good practices and policies employed in countries across the world. The goal is to identify areas of relative strength and weakness and use this information to guide Benin’s policies and practices during emergencies. At the same time, this

21 A global digital distance learning education platform for West and Central Africa French speaking countries is under preparation with the support of the World Bank Education Global Practices and will finalized by early June 2020.


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can be a shared endeavor in which Benin not only learns from other countries, but also shares its own experience and lessons learned with other countries. In addition, the proposed Project will support the development of a national strategy for education and learning continuity in the event of shocks and school closures. Further, an Education Emergency Response Plan will be developed and integrated into the Education Sector Plan 2018-2030. At school level, a guidance notes on school re-openings will be developed to ensure better preparedness after floods or other types of natural disasters.

(ii) Building back better with an effective data system: The post-COVID phase will offer many other

opportunities to “build back better.”. The proposed Project will support the strengthening of an effective data system, including the development of a methodology to identify vulnerable and at-risk students with the objective of more easily identifying and supporting them in the event of a crisis. This will allow the Ministry of Education to track whether learning outcomes are being maintained and/or improved, what factors are driving improvements, and what remedial measures need to be put in place to ensure that all students are provided with the opportunity to excel.

Component 3: Ensuring monitoring, management, and coordination of the project (US$0.8 million)

35. Component 3 aims to ensure the effective implementation of the daily operations of the proposed Project and to build knowledge and competencies to improve services delivery. Overall, project management will be implemented by drawing heavily on the implementation arrangements which were established under the recently approved Benin Global Partnership for Education Project Phase 3 (P167432). Implementation arrangements are detailed under Annex 1. The component will support the following key interventions:

(i) Project management and coordination including the following activities: - Preparation and execution of the eighteen (18) months’ work plan and budget, and procurement

plan; - Monitoring of the results framework and quarterly reporting; - Facilitate project communication; - Efficient fiduciary and safeguards implementation and reporting; and - Establishment and operationalization of a grievance redressal mechanism.

(ii) Strengthening monitoring of the project activities. The objective of this activity is to improve the capacity of the MoEs to systematically track progress in the implementation of the project based on the project results framework. To this end, the project will support: (i) the collection of school data on a regular basis; (ii) the STP responsible on monitoring the ESP indicators on behalf of the MoEs; and (iii) the Coalition Beninoise des Organisations de l’Education pour Tous (CBO/EPT)22 to report on citizen feedback on service delivery with the objective of identifying and addressing bottlenecks

(iii) Capacity enhancement for virtual meetings in MoE. This will include recruitment of a relevant firm

to design and install relevant ICT enabled equipment for virtual meetings, conference calls, and web conferencing. The recruited firm will also be required to train relevant staff at MoE on the use and maintenance of the equipment.

22 CBO/EPT is an umbrella organization of NGOs working for education in Benin


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Project cost and financing

36. The project is expected to be implemented over an 18-month period. GPE’s notional allocation for this proposed emergency operation is US$10 million. The table below shows a summary of the Project costs by sub-component. The detail costs are found in Annex 2.

Table 3: Project Cost per Component and Sub-component (US$ million)

Components/sub-components Project

cost GPE

Financing Percent

Financing

Component 1: Ensuring safe reopening of schools and return of students, especially vulnerable and disadvantaged students

7.80 7.80 100

1.1 media campaign and community sensitization 0.30 0.30 100

1.2 Ensuring continuity of learning and tracking of student results 3.90 3.90 100

1.3 Ensuring continuity of teaching and tracking of student results 3.60 3.60 100


1.25 1.25 100

2.1 Expanding sustainable remote learning opportunities 0.95 0.95 100

2.2 Building capacity to anticipate and cope with future shocks in education 0.30 0.30 100

Component 3: Ensuring monitoring, management and coordination of the project 0.80 0.80 100

Bank Supervision cost 0.15 0.15

Total 10.00 10.00 100

C. Project Beneficiaries

37. Overall, 1,062,000 students are expected to benefit from all project components (not double counting students who may benefit from more than one activity/component). In addition, teachers, school head teachers, pedagogical advisors, and inspectors will also benefit from trainings. Detailed direct beneficiaries include:

• Approximately 1,062,000 students and 26,800 teachers who will benefit from hand washing devices

• Approximately 220,000 students from schools with canteens will be waived from incidental canteen costs

• Approximately 89800 students of which 216,500 for LSS who will benefit from school kits

• Approximately 344,000 students at risk of repletion will receive remedial program

• Approximately 9900 teachers will benefit from accelerated programs to better guide children i

• Approximately 1000 teachers will receive training in distance teaching methods


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D. Results Chain

38. Links between the project activities, outputs, intermediate level results and long-term outcomes are illustrated in the schematic diagram presented below:

Components Interventions Outputs Outcomes (PDO level indicators)

1.Ensuring safe reopening of schools and return of students, especially vulnerable and disadvantaged students

1.1 Media campaign and community sensitization for returning to school and disease control and prevention. 1.2. Ensuring schools are safe for re-opening (provision of hand washing facilities and hygiene kits, and support for school infirmaries) 1.3 Ensuring continuity of learning and tracking of student progress (remedial programs, compensation of school canteen fees, school kits)

Communities and children are sensitized to school return and disease control and prevention Schools are safe for return

Dropouts are contained, especially among vulnerable students and girls

Children have access to hygiene and sanitation kits in schools

Schools are reopened in a safe environment, and children return to school

2. Improving preparedness to mitigate the effects of future crises

2.1 Sustainable remote learning opportunities are expanded (partnerships between MOE and national TV and radio stations established; teachers are supported, and distance learning content is developed). 2.2. Capacity to anticipate and cope with future shocks is built (policy framework and effective data collection system is set up)

-Established improved remote learning system post crisis -Students have access to self-learning materials and teachers are trained in distance teaching -Ministry’s capacity is strengthened to better respond to future crisis -Effective data system to identify at-risk students is in place

Remote learning opportunities are in place and the education system is more resilient

post crisis.

3. Ensuring monitoring, management and coordination of the project

Project management Capacity enhancement for virtual meetings in MoE

-Work plan and budget is set up -Quarterly reporting -Project communication is facilitated -Grievance redress mechanism is established

Timely implementation of project activities


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E. Rationale for Bank Involvement and Role of Partners

39. The Government Action Program (PAG) 2016-2021 considers investing in human capital a top priority for Benin’s development. The PAG places special emphasis on the need to help create more formalized employment opportunities for Benin’s burgeoning youth population, to improve health, education and social protections. The CPF 2019-2023 envisages two objectives to address the PAG’s national priorities: (i) improving relevance of education and professional training for strengthened job creation; and (ii) improving social protection, health and nutrition systems.

40. The World Bank’s value-added stems from its expertise in supporting countries further strengthen their basic education system. The World Bank has a long and successful experience in working with the Government on supporting and strengthening basic education. The World Bank has extensive technical and operational knowledge in the areas supported by the proposed Project—both in the sub-region and globally. Through its over 12 years of experience in leading the Fast Track Initiative - Common Budgetary Fund (Initiative Fast-Track- Fonds Commun Budgétaire-FTI-FCB) or Common Budgetary Fund -GPE (Fonds Commun Budgétaire – Partenariat Mondial pour l’Education -FCB-PME ) pooled funds the World Bank has gained an understanding of the education sector issues and has developed strategies and methods to support the Government most efficiently. The proposed Project, which is fully funded by the GPE, will leverage the World Bank’s experience in neighboring countries as well as lessons learned from previous and ongoing projects in similar settings. The Bank also has gained experience in supporting governments across the African continent in the fight against the Ebola virus. Lessons learned from that emergency response will be highly relevant in the context of the COVID-19 pandemic. The proposed Project is expected to complement specific assistance provided by a number of bilateral donors, such as French Development Agency (Agence Française de Développement (AFD), Swiss Cooperation, and multilateral organizations, such as the Unied Nations Children's Fund (UNICEF), World Food Program (WFP), UNESCO; etc. The support of these agencies includes:

a) Multiplication and dissemination of information posters and posters on hand washing; b) Support to learning continuity during the school’s closure; c) Equipment of some schools with minimum hygiene standard equipment, including hand washing

facilities23 for prevention of COVID-19; d) Construction of blocks of latrines and water points in some schools.

41. Development Partners—including the key members of the Local Education Group (LEG)—have played an important role in the preparation of the proposed Project. Faced with this COVID-19 pandemic, a team led by the lead donor (UNICEF) and comprising most of education donors and representatives of the three ministers of education (MEMP; MESFTP and, Ministry of Higher Education and Scientific Research (MESRS)) has been set up to prepare a strategic integrated plan (SIP) to mitigate the impact of the pandemic on the education system. The activities of the proposed Project are derived directly from the SIP. During project preparation, the Local Education Group (LEG) chaired by the MEMP, has been regularly consulted to ensure both strong project coordination, as well as a robust technical design. The proposed Project’s documents have been shared, discussed, and endorsed by the LEG and have benefitted from regular consultative feedback with key stakeholders. For project implementation, regular meetings of the LEG will enable the team to monitor implementation progress and to help resolve any potential implementation and/or coordination issues. For project implementation supervision, it

23 The number of washing facilities provided by other donors did not yet cover 30 percent of the needs. The MoEs, in close collaboration with donors will coordinate their distribution.


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is expected that combined or joint missions with other partners will be carried out.

F. Lessons Learned and Reflected in the Project Design

42. Project design incorporates lessons learned from: (i) the two previous GPE projects (FTI-2008-2012 and PME-2014-2018) that were supervised by the World Bank and for which resources were pooled with other donors funds; and (ii) other recent education pilot projects in Benin, including those supported by the German Corporation for International Cooperation (GIZ) and nongovernmental organizations (NGOs).. The most important lessons which have been incorporated are the following: ✓ Targeting education policies to reach the most deprived areas will better help the Government meet the

Millennium Development Goals in education, as well as to improve the impact of project interventions. The previous project (Benin FTI program-P110576) showed modest impact in improving the primary completion rate (PRC) due to the fact that the Government’s policies and project interventions were not focused on the most deprived areas.

✓ Support to access and equity in education are relevant for Benin to attain universal primary education. This is particularly important for children in deprived communes with limited modes of access to education during COVID-19.

✓ The targeted allocation of scare resources to the most deprived communes can be an effective way of

improving education outcomes within these areas—thus narrowing the performance gap between the wealthier and poorer communes in Benin. Under the Benin GPE Phase 2 Project (P129600), school kits, including stationery, school bags and uniforms, were provided to grade 1 and 2 girls in 25 deprived communes out of a total of 77 communes in the country. Available data shows that the effect of this activity was positive because the average increase in girls GER in deprived communes has quadrupled in the same period compared to the national average’

✓ In a context of frequent government turnover and institutional reorganization, the establishment of an efficient and appropriately staffed project coordination unit under the leadership of the Government can help ensure continuity during the project implementation. The proposed institutional arrangements are expected to minimize turnover-related delays, maintaining the institutional memory of a project, and reducing transaction costs by serving as a focal point on project implementation guidelines and procedures.

✓ The establishment of a robust M&E system should be prioritized in order to ensure the various outputs and outcomes achieved under Projects are systematically tracked and evaluated. Previous projects implemented in Benin have experienced challenges in the collection of data due to gaps in the EMIS system data. This has led to the need for complementary data collection efforts to fill these gaps. Establishing and maintaining a robust and agile M&E system will be prioritized under the proposed Project.

✓ Pooled fund mechanisms can provide a coherent framework for donor collaboration and coordination. Pooled funds can be a challenge to establish however, once criteria for the fund are agreed, they help ensure complementarity of donor investments. The proposed Project is expected to use the previously


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established pooled funds procedures (that included terms of reference, detailed activity sheets, etc.) for each activity. These procedures will help formalize and rationalize the execution of activities and ensure accountability. This will help to sustain and institutionalize the established pooled fund procedures. “

III. IMPLEMENTATION ARRANGEMENTS

A. Institutional and Implementation Arrangements

43. At the central level, apart from minor changes, the proposed Project will use the institutional arrangements of the Benin GPE Project- Phase 3 (P167432) which were inspired by the pooled fund arrangements. The modifications that will be made to accommodate the proposed Project are:

(i) New members—with experience in health-related interventions and in the production of distance learning lessons—will be added to the Project Steering Committee (PSC). The new members are: (i) two representatives of Ministry of Health; (ii) one representative of Ministry of Digital Economy; and (iii) two representatives from the donor community in the education sector.

(ii) The existing Technical Support and Monitoring Unit (Unité d’Appui Technique et de Suivi, (UATS)),

which is a technical assistance provider, as well as the day-to-day coordinator of the Benin GPE Phase 3 project, will be further strengthened with the recruitment of four additional staff: (i) a procurement specialist assistant; (ii) a monitoring and evaluation specialist assistant; and (iii) an environmental and a social safeguard specialists.

44. At the operational level, apart from the UATS, the Technical Permanent Secretariat (Secretariat Technique Permanent, (STP) and the Disbursement and Procurement Monitoring Committee (Comité de suivi des Décaissements et des Marchés, (CSDM) will play an important role in the effective implementation of the activities. Their respective responsibilities are detailed in Annex 1.

45. Technical departments of the three ministries involved in the proposed Project will be in charge of the implementation of their respective activities. Under the authority of the Secretary General of the MEMP, the departments implementing the Project Components and Sub-components are described in Annex 1.

46. In each of the 12 regions, the proposed Project’s activities will be coordinated by the regional directorates under the supervision of the Secretary General of each of the three ministries. For primary schools, the Sub-Regional School Inspectorates under the supervision of the Regional Directorates will be the key entities for overseeing project activities and compiling the data supplied by the schools for M&E.

47. At the school level, the school head is responsible for all the project activities taking place in the school, including the distribution of students’ uniforms in primary schools and distribution of girls’ kits and textbooks in lower secondary schools. At the community level, the COGEPs/ COGES composed of representatives of parents, school staff and local resource persons will be in charge of supporting schools to deliver the agreed results, and to monitor and report on the functioning of schools.

48. The above-mentioned arrangements are detailed in Annex 1 and will be complemented by an Annex to the


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existing Project Implementation Manual (PIM) developed for the Benin GPE Phase 3 operation, which sets forth all the operational and procedural steps for project implementation, including a detailed description of the roles and responsibilities of the aforementioned implementing units.

B. Results Monitoring and Evaluation Arrangements

49. The Education COVID-19 Project implementation will be monitored through a series of monitoring and evaluation (M&E) activities. Routine monitoring and reporting on the proposed Project’s outputs will provide information on the progress of implementation and help the team adjust as needed. The objectives of the M&E activities will be to: (i) track progress and provide timely feedback to the Government, MEMP, and the Bank team on implementation status and deliverables; (ii) provide preliminary evidence on the effectiveness of the intervention; and (iii) capture initial lessons learned from the design and implementation to improve future emergency operations. The guiding principle of the project M&E and review processes is to strengthen and use the established systems of the Government. The M&E indicators have been agreed with the LEG and project-specific indicators can be found in the Results Framework in Annex 1. The project’s impact, results and progress will be measured rigorously. The achievement of the PDOs will be measured with 6 outcome indicators and enable assessment of the impact of the project in a succinct manner. In addition, 8 intermediate indicators measure outputs of each component.

50. Implementation arrangements for results monitoring rely upon the MEMP. The Monitoring and Evaluation Unit (MEU) in the MEMP will take the lead on M&E activities for the proposed Project, supported by the M&E specialist in the Technical Support and Monitoring Unit UATS. The core technical departments carrying out activities under the project will provide inputs to the MEUs. A progress report will be prepared twice a year on the status of program implementation and will include an assessment of the outputs and outcomes achieved across the various Components of the proposed Project. The UATS will be responsible for the IFR of the program. 51. For the World Bank, the M&E system is designed based on the outcome and output indicators defined in the results framework. The progress in meeting the monitoring indicators will be reviewed by the World Bank’s semi-annual supervision missions. In addition, a mid-term review will be conducted, approximately one year after the project effectiveness, to assess overall progress in project implementation, update the results monitoring framework, review the financial allocation of project resources across components, re-assess the risks and propose corrective measures to further improve project implementation and to support the achievement of development objectives. 52. Joint Program Reviews. As part of the overall education program, the Government will organize a joint review once a year to assess the progress of the GPE project (including this project), as well as the education program as a whole. The Joint Annual Review will be held in April/May of each year. The review will be organized by the Technical Permanent Secretariat (Secretariat Technique Permanent, STP), involving all stakeholders, including donor partners and NGOs that are active in the education sector, teachers’ unions, parents’ associations and communities. Reviews will propose recommendations and steps to be taken to address observed weaknesses. Prior to the joint review, the World Bank’s first supervision mission will be organized, and this mission will enable members to participate in the annual joint review.


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C. Sustainability

53. The proposed Project is fully aligned with the Government of Benin’s COVID-19 Response Plan—both at the national and sectoral levels. The Government of Benin has developed a National Education COVID-19 Response in collaboration with all the donors. The Government’s Response Plan primarily aims to: (i) support the continuity of learning; (ii) anticipate measures to be taken towards schools re-opening and supporting safe practice in schools; and (iii) reinforce system resilience.

54. Consistency with the current WBG engagement to support countries in managing the impact of COVID-19 crisis on the education sector. The WBG remains committed to providing a fast and flexible response to the COVID-19 epidemic, utilizing all WBG operational and policy instruments and working in close partnership with Government and other agencies. This COVID-19 response is in line with the Country Partnership Framework (CPF). Strengthening Togo’s development trajectory will require focusing on improving its human capital outcomes and addressing disparities in poor and remote areas. Hence, the CPF’s second focus area aims to address the issue of weak quality of education services and the skills mismatch, with special attention to gender–particularly in secondary and higher education.

55. This is an emergency project to respond to the COVID-19 crisis. The sustainability of the proposed Project will largely depend on the capacity of the implementing agencies and the specific activities being implemented. The focus of some of the proposed Project’s activities on training and capacity building should help to further enhance the sustainability of the project. Furthermore, sustainability will be buttressed through the Benin Global Partnership for Education Project Phase 3 which has been under implementation since 2019.

IV. PROJECT APPRAISAL SUMMARY

A. Technical, Economic and Financial Analysis (if applicable)

56. The COVID-19 outbreak will negatively impact long-run growth and development. Low-income countries are expected to be more severely impacted, as current estimates suggest that a one percent decline in developing countries’ growth rates will push an additional 20 million people into poverty. Post-COVID-19 fiscal constraints could also be very tight, so greater focus on effectiveness in improving outcomes and equity will help to meet system goals in the medium term. Countries can act to mitigate the COVID-19 damage and then turn recovery into new opportunities through managing continuity- which means ensuring that school re-open successfully and that student learning can recover, particularly once schools re-open. Recovery strategies for students, teachers, classrooms, schools, and system will be pursued as will interventions aimed at and improving and accelerating learning during the post-COVID-19 crisis period.

57. The technical design of the proposed Project is informed by ongoing interventions which aim at mitigating the negative impact of COVID-19 on the education sector, as well as building the overall resilience of the system. The COVID-19 crisis threatens education and human capital accumulation. The learning crisis is likely to deepen, as more children may drop out of school, and the opportunity gaps between rich and poor will become even more pronounced. The immediate priority is to protect the welfare and potential of students during the crisis—keeping them safe and healthy and ensuring that they remain engaged in school and continue to learn. As schools plan to re-open, there is need to plan for and manage continuity through appropriate recovery strategies: waiving school


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fees; maintaining student’s health and safety by following government protocols; modifying school calendar; and providing training to identify and support at-risk students; etc. This proposed Project will aim to support activities which are intended to build the overall reliance of the education sector.

58. The education system is already facing a learning crisis. If the Government and development partners do not respond effectively, the COVID-19 outbreak is highly likely to further deepen the learning crisis and widen gaps between rich and poor in access to quality and equitable education. The impacts will be the greatest for poor and marginalized students. Student dropout rates are likely to rise, especially for the most disadvantaged, and households are likely to spend less on education inputs and school fees particularly for families hit by COVID-19 through illness and job losses. Cuts in education investments by the Government could worsen quality of education and deepen the already existing dearth of quantity and quality of teachers. Even if the Government responds well, recovery will be necessary to mitigate the impact of school closures, economic shock, and possible deep impacts on the country’s human capital development.

59. This proposed Project will support mitigation measures aimed at reducing the adverse effects of the COVID-19 pandemic on education outcomes. The expected positive outcomes are higher retention rates, as the pandemic might increase dropouts, affecting particularly children from poorer households and young girls. Costs are equivalent to the total cost of the project, which is expected to disburse US$9.7 million over a period of 18 months. 60. In terms of the benefits of education, investments in basic education are generally associated with very high economic returns—both to the individual and to society at large. Individuals in poor households may under-invest in education because of lack of resources at the risk of sacrificing their own future, therefore, public investment to fill the gap is needed. Further, education is associated with many non-monetary benefits to the individual and society at large, including better health, lower fertility, lower crime and higher productivity. Continuity of learning during the COVID-19 pandemic matters in order to produce such return to the investment. More detailed economic and financial analysis will be carried out before the approval of the project and the key findings will be included in an annex

B. Fiduciary

(i) Financial Management

Financial Management Assessment

61. A financial management (FM) assessment was undertaken to evaluate the adequacy of the proposed FM arrangements for Benin’s COVID-19 Education Response Project. The assessment focused on FM capacity within the Ministry related to planning and budgeting, accounting, funds flow, financial reporting, internal controls and external auditing that are needed to satisfy the World Bank’s Policy and Directive – Investment Project Financing (IPF), which describes the overall FM policies and procedures. The implementing entities’ arrangements are found to be acceptable if they are capable of: (i) recording correctly all budgets, transactions and balances; (ii) supporting the preparation of regular and reliable financial statements; (iii) safeguarding the entities’ assets; and (iv) are subject to auditing arrangements acceptable to the World Bank. The FM assessment, conducted in May 2020, covered the proposed implementing agency, the UATS under the MEMP, in accordance with the FM Manual for World Bank Investment Project Financing Operations that became effective on March 1, 2010 and re-issued on February 10, 2017. The assessment determined that the UATS is familiar with the Bank FM requirements and is


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managing the ongoing Benin Global Partnership for Education Project Phase 3 (P167432). The Benin Global Partnership for Education Project Phase 3 FM performance was rated Moderately Satisfactory following the last SPN mission of March 2020. In addition, there are no overdue audit reports or Interim Financial Reports (IFRs). UATS’s current FM staffing consists of a Financial Management Specialist and an Accountant who are experienced in the implementation of Bank-financed projects. The FM staffing is judged to be adequate and no additional staff would be required under the proposed COVID-19 emergency Project. While the disbursement arrangements will involve DAF/MEMP, as well as UNICEF24, the proposed Project will leverage the existing financial management arrangements of UATS for its implementation. In sum, the FM arrangements meet the minimum fiduciary requirements under Bank Policy and Directive for Investment Project Financing. 62. The financial management capacity of UATS will be further strengthened by: (i) the customization and updates of UATS’s accounting software to be able to handle this grant activities; (iii) the update of the existing implementation manual (PIM) UATS used for the Benin Global Partnership for Education Project Phase 3 to reflect some processes specific to the proposed operation; and (iv) the update of IGF’s (General Inspectorate of Finance) work-program to include the new project’s internal auditing on a risk-based approach. UATS will submit semi-annual unaudited interim financial reports to the World Bank, using the same formats as for Benin Global Partnership for Education Project Phase 3. Finally, the proposed Project’s annual accounts will be audited by an independent external auditor to be recruited in compliance with Terms of Reference (ToRs) acceptable to the International Development Association (IDA). The overall financial management and disbursement will be carried out in accordance with the streamlined FM and disbursement procedural measures for operations under the COVID-19 Emergency Response Program. 63. The overall FM residual risk rating for the project is assessed as Moderate. Based on the mitigation measures outlined above, the proposed financial management arrangements for this financing are considered adequate to meet the World Bank’s minimum financial management requirements under WB Policy and Directive – IPF. (ii) Procurement 64. The Borrowers will carry out procurement for the proposed project in accordance with the World Bank’s “Procurement Regulations for IPF Borrowers” (Procurement Regulations) dated July 2016 and revised in November 2017 and August 2018 under the “New Procurement Framework (NPF), and the “Guidelines on Preventing and Combating Fraud and Corruption in Projects Financed by IBRD Loans and IDA Credits and Grants”, dated July 1, 2016, and other provisions stipulated in the Financing Agreements. 65. The major planned procurement activities are expected to include: (i) assistance of UNICEF through a delivery of an output agreement; (ii) critical COVID-19 materials such as sanitary mask; (iii) social media platform; and (iv) communication kits. Given the emergency nature of the requirements, it was agreed that the Borrower will develop a streamlined Project Procurement Strategy for Development (PPSD) during the project preparation phase and then finalize the PPSD early during the implementation. An initial procurement plan for the first three months has been agreed with the Borrower and will be updated during implementation. 66. Procurement will be carried out by the person in charge of procurement for the UATS. 67. All procuring entities, as well as bidders, and service providers, i.e. suppliers, contractors and consultants will

24 The Bank will sign an agreement with UNICEF


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observe the highest standard of ethics during the procurement and execution of contracts financed under the project in accordance with paragraph 3.32 and Annex IV of the Procurement Regulations. 68. The procurement strategy is linked to the project implementation strategy ensuring proper sequencing of the activities. It considers institutional arrangements for procurement; roles and responsibilities; thresholds, procurement methods, and prior review; and the overall requirements for carrying out procurement. It also includes a detailed assessment and description of the Government’s capacity for carrying out procurement and managing contract implementation, within an acceptable governance structure and accountability framework. Other issues considered include the behaviors, trends and capabilities of the market (i.e. market Aanalysis) to respond to the procurement plan. 69. Project design will provide a window to enable the Borrower to carry out Advance Contracting and Retroactive Financing in accordance with Section V (5.1 and 5.2) of the WB Procurement Regulations for IPF Borrowers. Retroactive financing will be allowed up to 40 percent of the credit covering the expenditures incurred by the Project, not more than 12 months before the date of the signing of the Grant Agreement for the proposed GPE Grant. 70. A detailed procurement description and institutional arrangements can be found in Annex 1, Implementation Arrangements.

C. Legal Operational Policies . .

Triggered?

Projects on International Waterways OP 7.50 No

Projects in Disputed Areas OP 7.60 No .

D. Environmental and Social

Environment 71. The project components all aim at minimizing the adverse effects of COVID-19 on students, teachers, and the education system. The activities to be supported by the proposed Project generally have low environmental impact and potential health and safety risks to the communities, students, and teachers in view of activities involving mobilization of teachers, and the reopening of schools. The environmental, health and safety concerns arising from the proposed activities are mainly two: (i) continued risk of disease transmission; and (ii) management of solid waste and wastewater from hand washing facilities in the schools. The potential impacts and risks can be minimized through known measures to be included in the ESMF to be prepared by the Borrower. The proposed Project will support community sensitization, procurement of hand washing materials as preventative measures for spread of the highly infectious COVID-19 disease, and establish a system for referral for case management for teachers and students. Thus, as part of the Occupational, Health and Safety (OHS) measures, it is recommended that the project adopt infectious and prevention control protocols for all schools; include measures on emergency preparedness and response, and regular health screening of teachers and a sample of students to ensure safety of the teachers, students and the community. An Infectious Control and Waste Management Plan (ICWMP) will be prepared as part of the ESMF and disseminated to all schools.


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72. The project will be implemented by the MEMP and the MESFTP and the overall accountability of the proposed Project will rest with the General Secretary, MEMP. The MoEs will be responsible for the preparation and implementation of environment and safeguards instruments: Stakeholder Engagement Plan (SEP) and the Environmental and Social Commitment Plan (ESCP) by the time project appraisal, as well as overall compliance enforcement of relevant national health and safety regulations and guidelines. One environment specialist and one social specialist will be recruited to be part of the PCU throughout the project lifecycle. Social. 73. The expected activities aim mainly to : (i) support the implementation of the education sector COVID-19 response strategy; (ii) ensure effective continuity of student learning during and after the COVID -19 pandemic, particularly for the most disadvantaged students; and (iii) strengthen system resilience to mitigate the effects of subsequent crisis. The planned activities include, distance learning through radio, TV, messages and digital solutions (like online learning), and specific and targeted support to ensure mobile phone accessibility is improved in order to reach a larger number of students. The proposed Project will include no construction or rehabilitation. 74. The closure of the schools from March 30 to May 11, 2020, due to COIVD -19 is likely to have affected the progress of the planned education curriculum and result in anxiety and uncertainty in continuity for students in school as well as teachers. Both teachers and students have been rendered inactive for the closure period. Consequently, there is a risk that students have lost out on education. It is necessary to undertake mitigative actions to ensure that the impact of the closure of schools does not affect the progress of the students adversely, as well as empower the teachers and schools to bridge the gaps. Psycho-social support should be provided for the teachers and students. 75. Due to the economic impacts of the COVID -19 on low earning households, some children may drop out of school. Although schools have opened, some students may still dropout. To mitigate against this, it is necessary to provide scholastic materials to the students as well as delivery of the learning programs through the media and any other available practical channels as outlined in Component 1 of this proposed Project. This will encourage the parents to keep their children in school and provide continuity. Specific stakeholder engagement programs must be prepared for the parents on the benefits of keeping the children in school and attention should be given in the engagements to vulnerable students especially girl children and students with disabilities. 76. Cognisant of the measures to prevent further spread of COVID-19, among other preventative measures, good hygiene measures must be reiterated to the teachers, parents and students through stakeholder engagements and hygiene trainings and hand washing materials provided at the opening of schools. To achieve the benefits envisaged under Component 2, the activities of all stakeholders, including MOES, local governments, schools, communities; implementing authorities and personnel must be well coordinated and engaged. A Stakeholder Engagement Plan will be prepared as part of project preparation and updated immediately following the project’s approval. In addition, a Labor Management Procedure (LMP) will be prepared and disclosed shortly after the project’s approval date. It will provide guidance regarding the policies and procedures that will govern education workers, project staff and eventual other workers hired under the proposed Project.

77. Stakeholder Engagement and Grievance Redress Mechanism. Regarding the emergency context of the preparation of this project, the Government—through the ministries of the education sector—will draft the


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Preliminary Stakeholder Engagement Plan (SEP) in order to ensure a comprehensive, participatory, and coordinated stakeholder engagement and response to COVID-19 pandemic. As previously mentioned, the proposed Project will support a communication, mobilization, and community engagement campaign aimed at ensuring: (a) schooling and learning continuity and tracking of students’ progress; and (b) safe and effective re-opening of schools. The proposed Project will raise awareness and knowledge on prevention and control of COVID-19 among the population mainly teachers, students and students' parents, including vulnerable groups that will be specified in the SEP. The proposed Project will ensure that planned activities are inclusive and culturally sensitive, making sure the vulnerable groups specified in the SEP benefit from the project. Therefore, the SEP will include measures such as sensitization, collaboration, school-based development approach, Grievance Redress Mechanism (GRM), sexual exploitation and abuse and sexual harassment (SEA-SH) prevention and mitigation actions to ensure that citizens are adequately consulted and participate in project implementation. Efforts will also be put forth to ensure the proper operationalization of the GRM. Toward this effort, the proposed Project will prioritize communication using key local opinion leaders and the production of communication materials according to the kind of media (TV, radio, social media) using different languages and pictures, as necessary. The timing and method of communication will be adapted to ensure they adhere to the specific needs of various targeted beneficiaries (i.e. teachers, students, students’ parents, local communities, educator sectors services, NGOs, etc.). Strong community engagement—both during preparation and implementation—will be critical to ensure the design adequately reflect communities’ needs. Such an approach is likely to improve the overall quality and pace of implementation.

78. The ESCP will be developed to set out material measures and actions, any specific documents or plans, as well as the timing for each of these. The implementation of the material measures and actions set out in the ESCP will be monitored and reported to the WBG.

V. GRIEVANCE REDRESS SERVICES

79. Communities and individuals who believe that they are adversely affected by a World Bank (WB) supported project may submit complaints to existing project-level grievance redress mechanisms or the WB’s Grievance Redress Service (GRS). The GRS ensures that complaints received are promptly reviewed in order to address project-related concerns. Project affected communities and individuals may submit their complaint to the WB’s independent Inspection Panel which determines whether harm occurred, or could occur, as a result of WB non-compliance with its policies and procedures. Complaints may be submitted at any time after concerns have been brought directly to the World Bank's attention, and Bank Management has been given an opportunity to respond. For information on how to submit complaints to the World Bank’s corporate Grievance Redress Service (GRS), please visit http://www.worldbank.org/en/projects-operations/products-and-services/grievance-redress-service. For information on how to submit complaints to the World Bank Inspection Panel, please visit www.inspectionpanel.org.

VI. KEY RISKS

80. Overall project risks are judged to be moderate based on the SORT analysis. See Annex X for the detailed risk

analysis. .

http://www.worldbank.org/en/projects-operations/products-and-services/grievance-redress-service

http://www.inspectionpanel.org/


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VII. RESULTS FRAMEWORK AND MONITORING

Results Framework COUNTRY: Benin

Benin COVID-19 Education Response GPE Project

Project Development Objectives(s)

The proposed project's development objectives are to: (a) ensure continuity of teaching during and after the COVID -19 pandemic, particularly in deprived communes in the Recipient’s territory; and (b) increase the Government’s preparedness to mitigate the effects of future crises

Project Development Objective Indicators

RESULT_FRAME_TBL_ PD O

Indicator Name PBC Baseline End Target

Ensure continuity of teaching during and after the COVID -19 pandemic,

Share of children previously enrolled in schools who return to school once the school system is reopened (Percentage)

0.00 90.00

• Share of girl students previously enrolled in schools who return to school once the school system is reopened (Percentage)

0.00 80.00

• Share of children previously enrolled in schools in deprived communes who return to school once the school system is reopened (Percentage)

0.00 70.00

Schools equipped with minimum hygiene standards for prevention of COVID-19 (Percentage)

0.00 40.00

Schools equipped with minimum hygiene standards for prevention of COVID-19 (Number)

0.00 5,125.00


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RESULT_FRAME_TBL_ PD O


Schools offering remediation programs in deprived communes once the school system is reopened (Total) (Percentage)

0.00 60.00

Primary schools offering remediation programs in deprived communes once the school system is reopened (Number)

0.00 1,700.00

Lower secondary schools offering remediation programs in deprived communes once the school system is reopened (Number)

0.00 175.00

Improving preparedness to mitigate the effects of future crises

National strategy for continuity of learning for all children developed and disseminated (Yes/No)

No Yes

PDO Table SPACE

Intermediate Results Indicators by Components

RESULT_FRAME_TBL_ IO


Ensuring safe reopening of schools and return of students, particularly in deprived communes

Sensitization campaigns that aim at minimizing negative impacts of school closure like gender-based violence, and and issues related to unequal social norms are implemented (Yes/No)

No Yes

Grades 1 to 5 students whose learning was assessed to evaluate loss of learning during school closure in deprived communes (Percentage)

0.00 70.00

Grades 1 to 5 girl students whose learning was assessed to evaluate loss of learning during school closure in deprived communes (Percentage)

0.00 30.00

Children of deprived communes provided with learning kits (Number) 0.00 89,000.00


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RESULT_FRAME_TBL_ IO


Grades 1 and 2 girls of deprived communes provided with learning kits in primary education (Percentage)

0.00 80.00

Grades 7 and 8 girls of deprived communes provided with learning kits in lower secondary education (Percentage)

0.00 80.00

Teachers trained in deprived communes to provide accelerated programs to mitigate loss of learning during school closure (Percentage)

0.00 80.00

Primary teachers trained in deprived communes to provide accelerated programs to mitigate loss of learning during school closure (Number)

0.00 7,150.00

Lower secondary teachers trained in deprived communes to provide accelerated programs to mitigate loss of learning during school closure (Number)

0.00 2,820.00


Guidelines for re-opening of schools in the events of floods or over natural disasters/shocks is developed and disseminated (Yes/No)

No Yes

Teachers trained in using distance learning methods and/or provided with materials to support distance learning (Number) 0.00 1,000.00

Female teachers trained in using distance learning methods and/or provided with materials to support distance learning (Percentage)

0.00 30.00

Component 3. Ensuring monitoring, management and coordination of the project

Relevant ICT enabled equipment for virtual meetings, conference calls, and web conferencing is installed in the MEMP and MESFTP and operational (Yes/No)

No Yes

IO Table SPACE

UL Table SPACE


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Monitoring & Evaluation Plan: PDO Indicators

Indicator Name Definition/Description Frequency Datasource Methodology for Data Collection

Responsibility for Data Collection

Share of children previously enrolled in schools who return to school once the school system is reopened

The indicator measures the total number of students enrolled in school year (SY) 2020-2021 in primary and lower secondary schools divided by the total number of students enrolled in SY 2019-2020 at the same levels, before the COVID-19 pandemic

Semester

Education statistical yearbook

School census

DPP/MEMP and DPP/MESFTP

• Share of girl students previously enrolled in schools who return to school once the school system is reopened

The indicator measures the number of girl students enrolled in school year (SY) 2020-2021 in primary and lower secondary schools divided by the number of girl students enrolled in SY 2019-2020 at the same levels, before the COVID-19 pandemic

Semester

Education statistical yearbooks

School census


• Share of children previously enrolled in schools in deprived communes who return to school once the school system is reopened

The indicator measures, in deprived communes, the total number of students enrolled in school year (SY) 2020-2021 in primary and lower secondary schools divided by the total number of students enrolled in SY

Semester

Education statistical yearbooks

School census



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2019-2020 at the same levels, before the COVID-19 pandemic

Schools equipped with minimum hygiene standards for prevention of COVID-19

This indicator measures the number of public schools equipped with hand washing facilities in primary and lower secondary schools by the project divided by the total number of public schools at the same levels.

Semester

Report

Administrative data

DEP/MEMP and DESG/MESFTP

Schools equipped with minimum hygiene standards for prevention of COVID-19

This indicator measures the number of public schools equipped with hand washing facilities in primary and lower secondary schools

Semester

Report

Administrative data

DEP/MEMP DESG/MESFTP

Schools offering remediation programs in deprived communes once the school system is reopened (Total)

The indicator measures the number of primary and lower secondary schools in deprived communes offering remediation program to grades 1 to 6 and grade 10 students during the SY 2020-2021 divided by the total number of public primary and lower secondary schools in deprived communes in SY 2020-2021

Semester

Report

Administrative data

DEP/MEMP and DESG/MESFTP


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Primary schools offering remediation programs in deprived communes once the school system is reopened

Number of primary schools offering remediation programs in at least 5 grades in deprived communes once the school system is reopened

Semester

Report

Administrative data

DEP/MEMP

Lower secondary schools offering remediation programs in deprived communes once the school system is reopened

Number of Lower secondary schools offering remediation programs in deprived communes once the school system is reopened

Semester

report

Administrative data

DESG/MESFTP

National strategy for continuity of learning for all children developed and disseminated

National strategy for continuity of teaching for all children is developed and validated by the MoEs, and disseminated in all directorates of the MoEs

Annual

Report

Administrative data

Technical Permanent Secretariat / Ten-year Education Sector Plan (Plan Décennal de Développement du Secteur de l’Education)

ME PDO Table SPACE

Monitoring & Evaluation Plan: Intermediate Results Indicators

Indicator Name Definition/Description Frequency Datasource Methodology for Data Collection

Responsibility for Data Collection

Sensitization campaigns that aim at minimizing negative impacts of school closure like gender-based violence, and and issues related to unequal social norms are implemented

Sensitization campaigns that aim at minimizing negative impacts of school closure like gender-based violence, and issues related to unequal social norms are implemented though radio/TV and grass-root

Semester

Report

Administrative data



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level

Grades 1 to 5 students whose learning was assessed to evaluate loss of learning during school closure in deprived communes

This indicator measures the number of grades 1 to 5 students in public schools in deprived communes whose learning was assessed in August 2020 to evaluate loss of learning during school closure divided by the number of grades 1 to 5 students in public schools in deprived communes

Annual

Report

Administrative data

DEP/MEMP

Grades 1 to 5 girl students whose learning was assessed to evaluate loss of learning during school closure in deprived communes

This indicator measures the number of grades 1 to 5 girl students in public schools in deprived communes whose learning was assessed in August 2020 to evaluate loss of learning during school closure divided by the number of grades 1 to 5 students in public schools in deprived communes

Annual

Report

Administrative data

DEP/MEMP

Children of deprived communes provided with learning kits

Number of students of grades 1 and 2 and girls of grades 7 and 8 of deprived communes provided with learning kits

Annual

Report

Administrative data


Grades 1 and 2 girls of deprived communes provided with learning kits in primary education

Number of students of grades 1 and 2 in public schools of deprived

Annual

Report

Administrative data

DEP/MEMP


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communes provided with learning kits divided by the total number of students of grades 1 and 2 in public schools of deprived communes

Grades 7 and 8 girls of deprived communes provided with learning kits in lower secondary education

Number of grades 7 and 8 girl students in public schools of deprived communes provided with learning kits divided by the total number of grades 7 an 8 girls students in public schools of deprived communes

Annual

Report

Administrative data

DESG/MEMP

Teachers trained in deprived communes to provide accelerated programs to mitigate loss of learning during school closure

Number of primary and lower secondary teachers in public schools trained in deprived communes to provide accelerated programs to mitigate loss of learning during school closure divided by the total number of primary and lower secondary teachers in public schools in deprived communes

Semester

Report

Administrative data

INFRE/MEMP INIFRFC/MESFTP

Primary teachers trained in deprived communes to provide accelerated programs to mitigate loss of learning during school closure

Number of primary teachers who received 3-days training in deprived communes to provide accelerated programs to

Semester

Report

Administrative data

INFRE/MEMP


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mitigate loss of learning during school closure

Lower secondary teachers trained in deprived communes to provide accelerated programs to mitigate loss of learning during school closure

Number of lower secondary teachers who received 3 days training in deprived communes to provide accelerated programs to mitigate loss of learning during school closure

Semester

Report

Administrative data

INIFRFC/MESFTP

Guidelines for re-opening of schools in the events of floods or over natural disasters/shocks is developed and disseminated

Guidelines for re-opening of schools in the events of floods or over natural disasters/shocks is developed and validated by the MoEs and disseminated in all directorates of the MoEs

Semester

Report

Administrative

Technical Permanent Secretariat of PSE (STP/PDDSE)

Teachers trained in using distance learning methods and/or provided with materials to support distance learning

The indicator measures the total number of students enrolled in school year (SY) 2020-2021 in primary and lower secondary schools divided by the total number of students enrolled in SY 2019-2020 at the same levels, before the COVID-19 pandemic

Semester

Report

Administrative data

INFRE/MEMP INIFRCF/MESFTP

Female teachers trained in using distance learning methods and/or provided with materials to support distance learning

Number of female teachers trained in developing distance learning content and/or provided with electronic tablets to support

Semester

Report

Administrative data

INFRE/MEMP INIFRCF/MESTFP


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the development of the content divided by the total number of teachers trained in developing distance learning content and/or provided with electronic tablets

Relevant ICT enabled equipment for virtual meetings, conference calls, and web conferencing is installed in the MEMP and MESFTP and operational

Equipment for virtual meetings, conference calls, and web conferencing is in place in the MEMP and MESFTP and is working and relevant staff are trained to use them

Semester

Report

Administrative data

UATS

ME IO Table SPACE

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ANNEX 1: Implementation Arrangements and Support Plan

COUNTRY: Benin

Benin COVID-19 Education Response GPE Project

Project Institutional and Implementation Arrangements

1. Apart from minor changes, the proposed Project will use the institutional arrangements of the Benin GPE Project-

Phase 3 (P167432) set-up as indicated below. The modifications that will be made to accommodate the proposed

Project are: (i) new members will be added to the Project Steering Committee with experience related to the Project

activities that are health-related which includes hygiene as well as the production of distance learning lessons; and (ii)

recruitment of two (2) additional staff—a procurement specialist assistant and a monitoring and evaluation specialist

assistant.

Arrangements for piloting and monitoring at the Central Level

2. Project Steering Committee (PSC). A PSC, chaired by the minister of MEMP, leader of the Ministers of Education,

and co-chaired by the MESTFP, will meet at least twice a year, as in the Benin GPE Phase 3 Project, to, among others

tasks: (i) validate the biannual progress report of the project, as well as the Annual Work Plan and Budget (Plan de

Travail Annuel et Budget-PTAB); (ii) devise solutions to challenges that may arise during the course of project

implementation; (iii) undertake proactive measures to ensure effective project implementation; and (iv) coordinate

project monitoring and evaluation activities.

3. The PSC will be composed, inter alia, of: (i) the director of the national institute for training and research in

education (D/INFRE); (ii) the director of primary education (DEP); (iii) the director of pedagogical inspection and

innovation (D/IGPM); (iv) the director of programming and planning (DPP); (v) the director of administration and

finance (DAF); (vi) the director of the national engineering institute for training and capacity building of trainers

(D/INIFRCF); (vii) the director of general secondary education (DGES); (viii) the director of pedagogical inspection,

innovation and quality (DIPIQ); (ix) two regional directors of the MEMP and two regional directors of the MESTFP; (x)

the secretary general of the Ministry (SGM) and the director of persons with disabilities and the third age (senior age)

of the MASM; (xi) the DPP and the director general of higher education; (xii) The SGM of the MEMP and MESFTP; (xiii)

one representative of the MoF; (xiv) one representative of the MoD; (xv) two representatives of Ministry of Health;

(xvi) one representative of Ministry of Digital Economy; (xvii) two representatives from the donor community in the

education sector; and (xviii) the head of STP-PDDSE. The UATS Coordinator serve as the secretary of the PSC. The

existing Decree will be revised to include new members within the PSC based on the health and hygiene activities under

the proposed Project.

4. Technical Support and Monitoring Unit (Unité d’Appui Technique et de Suivi - UATS). The existing UATS will ,

provide support to: (i) ensure that the grant resources are taken into account in the annual budgeted action-plan of

the recipient’s ministries; (ii) reinforce planning, programming and budgeting of project activities; (iii) reinforce the

project’s procurement, monitoring and evaluation, and FM aspects; (iv) prepare the proposed Project M&E and

fiduciary reports; (v) facilitate internal and external communications; and (vi) carry out the evaluation and assessment

of project activities. The UATS which comprises: a coordinator, a financial analyst, an accountant and specialists in

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procurement, monitoring and evaluation, along with support staff, will be further strengthened by the recruitment of

one procurement assistant, one monitoring assistant; one environment specialist and one social safeguard Specialist

in order to ensure swift implementation and monitoring of project-supported activities as indicated above.

5. Disbursement and Procurement Monitoring Committee (Comité de suivi des décaissements et des Marchés -

CSDM). The CSDM will facilitate the procurement and disbursement process within the Ministry of Finance in order to

reduce administrative bottlenecks. The CSDM will be chaired by the Ministry of Finance Director of Cabinet. It will be

comprised of representatives of: (i) directorates and agencies of the Ministry of Finance involved in the procurement

and disbursement process (DNCMP, DGB, CAA, CF, DGTCP)25; (ii) procurement units, DPPs, DAFs of the three ministries

involved in the project; (iii) UATS representatives including the coordinator and fiduciary specialists; and (iv)

representatives of General Directorates of Development Policies (DGPD) and Investment and Development Financing

(DGFID) of the Ministry of Development. The CSDM will meet once every two months to develop and provide quick

and effective solutions to the problems identified. The report of each meeting will be sent to the General Secretary of

(SG/MEMP).

Arrangements for Technical Implementation

Central level Arrangements for Implementation

6. Technical departments of the three ministries involved in the program will be in charge of the implementation of

their respective activities. All project implementation arrangements are based on existing Government systems and

procedures. In order to develop the institutional capacity for project implementation, apart from UATS assistance,

other technical assistance will be provided for the development distance learning materials.

7. Since the implementation of the GPE/FCB program takes place within the technical departments of the three

ministries, implementation responsibilities for the components and sub-components of the GPE program are as follow:

25 CAA: Autonomous Debt Centralization Department CF: Financial Control Directorate ( Contrôle Financier) DGB: General Directorate of Budget (Direction Générale du Budget) DGTCP : Directorate General of the Treasury and Public Accounting (Direction Générale du Budget et de la Comptabilité

Publique) DNCMP: National Procurement Control Directorate (Direction Nationale de Contrôle des Marchés Publics)

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Table 1: Detailed responsibilities by components and subcomponents

Components (Responsible Unit)

Sub-components Implementing Entity

Directorates involved in the implementation

Component 1: Ensuring safe reopening of schools and return of students, especially vulnerable and disadvantaged students. Director of Primary Schools

1.1 Media campaign and community sensitization for returning to school and disease control and prevention.

SGM/MEMP MEMP: INFRE, IGPM, DEM and DEP MESTFP: SGM, DIPIQ and INIFRCF

1.2: Ensuring schools are safe for re-opening

DESG/MESTFP MEMP: INFRE, and DEP MESTFP: INIFRCF UNICEF

1.3 Ensuring continuity of learning and tracking of student progress.

DEP/MEMP MEMP: INFRE, DIIP and MESTFP: DESG, DIPIQ and INIFRCF UNICEF

2. Strengthening education system resilience in the medium and long term Director of the National Institute for Training and Research in Education-(INFRE).

2.1 Expanding sustainable remote learning opportunities.

INFRE MEMP: DEP, DEM, and IGPM, MESTFP: DIPIQ, DESG

2.2 Building capacity to anticipate and cope with future shocks in education

DPP/MEMP MEMP: INFRE, IGPM, DEM and DEP MESTFP: DPP, DIPIQ and INIFRCF

3. Ensuring monitoring, management and coordination of the project SGM/ MEMP

UATS

MEMP: DPP, INFRE, DEP, DEM and DPP MESTFP: INIFRCF, DPP, DIPIQ and DPP CBO/EPT

8. The Administration and Finances Department for MEMP (Direction de l’Administration et des Finances DAF/MEMP), in close collaboration with the DPP of the MEMP, will be responsible for coordinating the preparation and execution of the PTABs, submitting financial reports, and ensuring overall financial management and compliance. It will work closely with the other DAFs. The financial management specialist of the UATS will provide assistance to all the DAFs involved in the program. 9. The UATS Procurement Specialist will be responsible for all procurement activities at the central level. This Procurement Specialist will work closely with the Procurement Units (PU) from the other two ministries involved in the project.

10. Since the implementation arrangements are similar to the ones of the GPE Phase 3 project, an annex to the existing Operations Manual will be developed to include new activities. Local donors to the education sector will be pro-active and ensure close supervision based on the government risks management action plan.

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Regional and Sub-Regional Level Arrangements for Implementation

11. The regional directorates of education (DDEMP for MEMP, and DDESTFP for MESTFP) will coordinate and supervise the project activities in each of the 12 regions of the country. With regards to grants to sub-regional inspectorates, the head of DDEMP will be also responsible for monitoring its implementation. The grants to regional inspectorates for secondary schools will be monitored by the DIPIQ.

12. For primary schools, school sub-regional inspectorates, under the supervision of DDEMPs, will be responsible for the completion and implementation of the annual work program (AWP) within their respective areas. As such, the school sub-regional inspectorate head, in close collaboration with the pedagogical advisors under their supervision, as well the heads of the divisions within the school inspectorate, will be responsible for: (i) implementing the proposed Project’s in-service training program; (ii) overseeing the distribution of girls’ uniforms; (iii) implementing its PBC; and (iv) compiling the data supplied by the schools for M&E. The data will be sent to the DDEMPs on a quarterly basis and the relevant central department will be copied on all such correspondence. To carry out these responsibilities, the heads of sub-regional school inspectorates will benefit from training in data management and analysis.

School Level Arrangements for Implementation

13. COGEP will be responsible for all project activities taking place in the school, including the distribution of textbooks to students, students’ uniforms, and schools’ kits. The COGEP/COGES will make publicly available the financing received from the Government and will also communicate the schools’ results to the community and deliver basic school statistics indicators to the sub-regional school inspectorate for primary schools and regional directorate for secondary schools.

Financial Management and Disbursement Arrangements

14. These arrangements include budgeting, financial reporting, supervision, management of the Designated Account, and

auditing.

Budgeting arrangements

15. UATS, in close collaboration with all involved implementing partners and technical units, will prepare an initial work plan and budget for implementing project activities considering the project’s objectives. Thereafter, UATS will prepare on an annual basis (if needed), an Annual work plan and budget (AWPB). AWPB will be approved by the Steering Committee and submitted to the World Bank for no-objection no later than November 30 of each year proceeding the year the work plan should be implemented. The budgetary discussions will begin at least six months before the fiscal year of implementation and will consider the procurement plan as the starting point. Once the budget is approved, it will be integrated in the computerized accounting system to serve as a basis for a budget execution monthly follow-up, based on variance analysis.

Accounting and Reporting Arrangements

16. Accounting policies and procedures. As part of the project preparation, and within three months after effectiveness26, the borrower will update the Project Implementation Manual (PIM) UATS is using for Benin Global Partnership for Education Project Phase 3. The accounting systems, policies, and administrative and financial procedures will be documented in this PIM.

17. Accounting staff. UATS will retain staffing resources that are adequate for the level of project operations and activities and are enough to maintain accounting records relating to project financed transactions, and to prepare the project’s

26 Once the Project is approved by GPE and the Bank it automatically become effective because there will be no effectiveness conditions.

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financial reports. The FM function will be carried out by a team composed of a qualified and experienced Financial Management specialist and a qualified and experienced Accountant who are already in place. This FM staffing is adequate; no additional staff would be required. This team will have the overall FM responsibility over budgeting, accounting, financial reporting, flow of funds, internal control, and auditing. The FM staff will have their capacity reinforced over the project implementation through the rolling out of the training plan that includes training on IDA disbursement procedures and financial reporting arrangements, among others.

18. Accounting information systems software. UATS will ensure within three months after the project effectiveness the well-functioning of the accounting software UATS is using for Benin Global Partnership for Education Project Phase 3 and its customization to handle this grant activities.

19. Accounting standards. UATS will use SYSCOHADA accounting standards which is commonly used amongst West African Francophone countries. Accounting procedures will be documented in the PIM.

Internal Control and Internal Audit Arrangements

20. Internal controls. The internal control policies and procedures will be documented in the PIM which will be updated within three months after project approval/effectiveness. The PIM will document the financial management and disbursement arrangements including internal controls, budget process, assets safeguards, and clarify roles and responsibilities of all the stakeholders.

21. Internal audit. Similarly to Benin Global Partnership for Education Project Phase 3, the General Inspectorate of Finance (IGF) will implement the Project’s internal audit annual work-program with special attention to operations costs, including per diems and other soft expenditures, to ensure they are used in an economical manner and for the intended purpose. IGF will need to strengthen project governance by conducting internal audit missions semi-annually using a risk-based approach to ensure due compliance with agreed procedures. These semi-annual internal audit reports need to be submitted to the World Bank within 45 days after the end of the semester.

22. Transparency, accountability and anti-corruption efforts will be encouraged including via a complaint handling

mechanism; a communication strategy to inform the public through the media on all aspects of the project; and the

publication on the implementing entity or Government websites of budgets, financial reports and audited financial

statements. UATS will also have to deal with fraud and anti-corruption in accordance with the World Bank Anti-

Corruption Guidelines referred to in the Financing Agreement.

Flow of Funds and Disbursements Arrangements

23. A designated account will be opened for disbursement purposes at the Central Bank of West African States (Banque Centrale des Etats de l’Afrique de l’Ouest (BCEAO). The funds will be released to an Operational Account to be opened in the same commercial bank as for Benin Global Partnership for Education Project Phase 3. The Operational Account will be managed by UATS. Cash withdrawal transactions from the Operational Account will be authorized respectively by the UATS’s Coordinator and the DAF/MEMP. The DA’s ceiling, for approximately six months of expenditures, will be determined in the DFIL.

24. Disbursement of funds to UN Agencies (WHO, UNICEF and UNOPS etc.). Engagement of UN agencies through the Government is done pursuant to Standard Form Agreements signed between the Government and the UN agency. UN agencies are used as implementing agencies or suppliers. Upon signing of the Standards Form Agreements between the government and UN agency, application for withdrawal of proceeds will be prepared by UATS and submitted to IDA. The special World Bank disbursement procedures will be used to establish a “Blanket Commitment” to allow the amount to be advanced. Funds withdrawn from the IDA loan account will be deposited directly into the

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UN bank account provided by UN agency for the project activities to be implemented by the UN agency. The amount advanced will be documented through the semesterly unaudited Interim Financial Reports as actual expenditures are incurred by the UN agency.

25. Retroactive Financing. Withdrawals up to an aggregate amount not to exceed US$ 4 million may be made for

payments prior to the signature date of the Grant for eligible expenditures.

Figure 1 Funds Flow Diagram

26. Disbursements will be made in accordance with the Disbursement Guidelines for Investment Project Financing dated February 2017. Withdrawal application requests will be prepared by the Project’s FM Specialist signed by a designated signatory or signatories (the signature authorization letter is signed by the Minister of Finance) and sent to the Bank for processing. The Project will submit applications using the electronic delivery tool, “e-Disbursements”, available at the Bank’s Client Connection website/web-based portal. The Authorized Signatory Letter signed by the GoB will include authorization for the designated signatories to receive Secure Identification Credentials (SIDC) from the World Bank for delivering such applications by electronic means.

27. Disbursements under the Project will be transaction-based. In addition to making advances to the DA, other disbursement methods (reimbursement, direct payment, and special commitment) will be available for use under the

Transfers of funds

Flow of documents (invoices, good receipt notes, purchase order, contract)

Payment to suppliers

Direct payment

IDA Account (Washington) at the World Bank

Designated Account (BCEAO) managed by CAA

Beneficiaries / Suppliers / Consultants

Transactions Account (in acceptable commercial bank)

managed by UATS

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Project. Further instructions on the withdrawal of proceeds will be outlined in the Disbursement and Financial Information Letter (DFIL) and details on the operation of the DA will be provided in the Project Administrative, Accounting and Financial Manual of procedures (as part of the PIM). Given the situation of urgent need of assistance or capacity constraints, disbursements under contracts for goods, works, non-consulting services and consulting services procured or selected through international open, or limited competition, or Direct Selection, as set out in the procurement plan, must be made only through Direct Payment and/or Special Commitment disbursement methods.

28. Table 2 below specifies the categories of eligible expenditures to be financed out of the proceeds of the financing, the

amounts under each category, and the percentage of expenditures to be financed for eligible expenditures in each category. Table 2. Categories of Eligible Expenditures

Category Amount of the financing allocated (expressed in US$)

Percentage of expenditures to be

financed (inclusive of taxes)

1- Goods, non-consulting services, consulting

services, Operating Costs and Training under the

Project, except for Parts 1.2(b), 1.2(c), 1.3(b),

1.3(c) and 1.3(e)

2- Subgrants under Parts 1.2(b), 1.2(c), 1.3(b) and

1.3(e) of the Project

3- Subgrants under Part 1.3(c) of the Project

TOTAL AMOUNT

Financial Reporting Arrangements

29. UATS will prepare semi-annual un-audited IFRs in form and content satisfactory to the World Bank, which will be submitted to the World Bank within 45 days after the end of the semester to which they relate. The semi-annual IFR will include the following information: (i) Statement of Sources and Uses of Funds; (ii) Statement of Uses of Funds by project Activity/Component including comparison with budget for the quarter and cumulative; and (iii) the Designated and project Account Reconciliation Statements and related bank statements.

30. External Audit Arrangements. An external independent and qualified private sector auditor will be recruited to carry out the audit of the project’s financial statements. The annual audits will be conducted based on ToR that are satisfactory to the World Bank. The Auditor will express an opinion on the Annual Financial Statements and perform his audit in compliance with International Standards on Auditing. The auditor will be required to prepare a Management Letter detailing observations and comments and providing recommendations for improvements in the accounting system and the internal control environment. The audit report on the annual project financial statements and activities of the DA shall be submitted to the WB within six (6) months of the end of each fiscal year.

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31. In accordance with World Bank Policy on Access to Information, the Borrower is required to make its audited financial statements publicly available in a manner acceptable to the Association; following the World Bank’s formal receipt of these statements from the borrower, the World Bank also makes them available to the public.

Table 3: Financial Management Action Plan

Issue Remedial action recommended Responsible entity

Completion Effectiveness conditions

Information system accounting software

Ensure the well-functioning of the UATS’s accounting software;

UATS/MEMP Three months after effectiveness

N

Financial reporting: IFR

Format, content, and frequency of the IFR will be agreed during project negotiation

UATS/MEMP During negotiations N

Administrative, Accounting and Financial Manual of procedures

Update UATS’s Administrative, Accounting and Financial Manual of procedures (as part of the PIM) that also includes detailed procedures describing the system to pay recurrent expenditure with specific sections on anti-corruption aspects.

UATS/MEMP Prior to effectiveness

N

Internal audit Update of IGF’s work-program to include the new project’s internal auditing on a risk-based approach; Submit semi-annual internal audit reports to the WB within 45 days after the end of the audit period.

UATS/MEMP Three months after effectiveness

External financial auditing

Appoint an external auditor acceptable to IDA

UATS/MEMP Six months after effectiveness

N

32. Implementation Support Plan. FM implementation support missions will be carried out twice a year based on the substantial FM residual risk rating. Implementation Support will also include desk reviews such as the review of the IFRs and audit reports. In-depth reviews may be done where deemed necessary. The FM implementation support will include FM training missions for all implementing entities and will be an integrated part of the project’s implementation support plan. Table 4: Financial Management Implementation Support

FM Activity Frequency

Desk reviews

Interim financial reports review Quarterly

Audit report review of the project Annually

Review of other relevant information such as interim internal control systems reports.

Continuous as they become available

On site visits

Review of overall operation of the FM system Once per year (Implementation Support Mission)

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Monitoring of actions taken on issues highlighted in audit reports, auditors’ management letters, internal audit and other reports

As needed

Transaction reviews (if needed) As needed

Capacity building support

FM training sessions During implementation and & as needed.

33. The conclusion of the assessment is that the FM arrangements in place meet the World Bank’s minimum FM requirements under World Bank Policy and Directive for IPF Operations, and subject to the implementation of the FM action plan above, are therefore adequate to provide, with reasonable assurance, accurate and timely information on the status of the project required by WB. The project’s FM risk of the project is assessed as Moderate.

Procurement

34. Procurement under the Emergency Education Coronavirus response project will be carried out in accordance with the World Bank’s Procurement Framework. Procurement by countries will follow the World Bank’s Procurement Regulations for IPF Borrowers for Goods, Works, Non-Consulting and Consulting Services, dated July 1, 2016 (revised in November 2017 and August 2018). The Projects will be subject to the World Bank’s Anticorruption Guidelines, dated October 15, 2006, revised in January 2011, and as of July 1, 2016. The Implementing Agency will use the Systematic tracking of Exchanges in Procurement (STEP) to plan, record and track procurement transactions.

35. The major planned procurement activities are expected to include: (i) assistance of UNICEF through a delivery of output agreement; (ii) critical COVID-19 materials such as sanitary mask; (iii) social media platform; and (iv) communication kits. Given the emergency nature of the requirements, it was agreed that the Borrower develops a streamlined Project Procurement Strategy for Development (PPSD) during the project preparation phase and finalizes the same early during the implementation. An initial procurement plan for the first three months has been agreed with the Borrower and will be updated during implementation.

36. The existing UATS will assume the fiduciary aspects (procurement) and responsibilities for reporting to the WB. The existing UATS have experience in handing procurement under World Bank’s Financed projects. UATS is in the process of successfully implementing the 3rd phase of the Benin GPE education project (P167432).

37. If requested by the borrower, the Bank will provide procurement hands-on expanded implementation support to help expedite all stages of procurement – from help with supplier identification, to support for bidding/selection and/or negotiations to contract signing and monitoring of implementation. A Bank procurement accredited staff/consultant will provide support to the implementation unit during all emergency procurement stages.

38. In addition, the existing Project Implementation Manual which includes the detailed process for procurement activities and relation between the UATS and other key actors will be updated to include the specificity of the Emergency Education Coronavirus response project.

39. The proposed procurement approach prioritizes fast track emergency procurement for the required emergency goods, works and services, particularly for the prevention phase and the relief phase. In this regards, key measures to fast track procurement include the following measures:

• use of simple and fast procurement and selection methods fit for an emergency including direct contracting, as appropriate

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• procurement from UN Agencies enabled and expedited by Bank procedures and templates

• use of procurement agents

• increased thresholds for Requests for Quotations and national procurement, among others

• Other measures like shorter bidding time, no bid security, advance payments, direct payments, will be applied on a case by case basis upon advice/guidance from the Accredited Procurement Specialist;

• Retroactive financing from June 15, 2020 i.e. procurement prior to project effectiveness; and

• Conducting post reviews. .

Table 5. Summary of major risks to procurement and proposed mitigation measures

Limited capacity to conduct emergency procurement.

The UATS will maintain staff with the appropriate capacity dedicated to the COVID-19 response. The WBG will provide support through a procurement accredited staff and a HEIS.

Reinforcement of the procurement unit Recruitment of a Procurement Assistant to support UATS SPM

Managing fraud and corruption and noncompliance.

Ex-ante due diligence of firms being selected will be attempted using databases available in country and externally. Post-review of contracts will be scheduled immediately on award of contracts for all contracts that would have been usually prior reviewed.

Capacity of the market and supply chain to meet the demand.

Proposed mobilization of existing service providers with the possibility to proceed with contracts extension for additional activities through contract amendment are expected to address the emergency medical service requirements. Measures for supplier preferences such as direct payments by Bank, and advance payments, will be applied on as needed basis.

Revision of the existing manual to take into account the urgency of the Covid-19

The existing Project Implementation Manual which includes the detailed process for procurement activities and relation between the UATS and other key actors will be updated to include the specificity of the Emergency Education Coronavirus response project.

40. The procurement residual risks are rated Moderate after implementation of the mitigation measures (see Table above). The Bank’s oversight of procurement will be done through increased implementation support, and increased procurement post review while prior review will not apply.

Bank Implementation Support Plan

41. This proposed Project will require support throughout project implementation period. A broad range of skills are required for the World Bank to effectively support its implementation. The implementation support team will include specialists in administrative and FM, procurement; education specialists; safeguards, management; social mobilization/advocacy, training, M&E, and operations. The procurement specialist will carry out annual ex-post review of procurement that falls below prior review thresholds and will have separate focused missions depending on the procurement needs that arise. The FM specialist will review all FM reports and audits and take necessary follow-up actions according to World Bank procedures. World Bank team members will also identify capacity building needs to

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ensure successful project implementation. Implementation support in the first year of the proposed Project will be intense and focus on creating project implementation momentum through institutional capacity strengthening and technical assistance.

42. Development partners are expected to provide technical assistance to strengthen the implementation of select project activities, in line with their respective mandates. UNICEF will have a technical support role with regard to WASH activities required COVID-19 prevention and control. The World Bank team will coordinate its implementation support with these partners to get the most value-for-money, avoid duplication, and exploit synergies.

43. The World Bank team will undertake implementation support missions (supervision missions) related to the timely coordination of the pandemic response. A mid-term review (MTR) will be organized by the World Bank to take stock of project implementation and to identify corrective actions or adjustments as necessary. At project end, the World Bank team will prepare an Implementation Completion and Results Report (ICR) that summarizes achievements made under the project.

44. The World Bank team will monitor progress based on: (i) key performance indicators, as identified in the Results Framework; (ii) implementation of the project components; (iii) the implementation of the procurement plans; (iv) whether estimated project costs are sufficient to cover planned activities and whether reallocation of grant funds is required; (v) compliance with World Bank FM and disbursement provisions; and (vi) compliance with environmental and social safeguards.

Table 6: Support Plan

Timeline Focus Skills Needed Resource Estimate

0–12 months Creating project implementation momentum through institutional capacity strengthening, preparation for first procurement packages and technical assistance for implementation.

Project management, operational, technical (including M&E), fiduciary, environment, and social

At minimum, two formal implementation support missions.

12–24 months Continued institutional capacity enhancement, implementation monitoring, operational and technical assistance to support implementation

Project management, operational, technical (including M&E), fiduciary, environment, and social

Two formal implementation support missions; just-in-time technical assistance

Midterm review Midterm review and identification of midcourse adjustments

Project management, operational, technical (including M&E), fiduciary, environment, social

Comprehensive MTR mission

Completion phase ICR and final payments Project management, fiduciary

ICR mission

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ANNEX 2: Detailed project costs

PROJECT ACTION PLAN (DETAILED COSTS) COMPONENT/SUB-COMPONENT

QTE unit unit cost in US$

COST in K US$

Activity // Sub-activity Year 1

TOTAL PROJECT COSTS 10 000

PROJECT COSTS WITHOUT CONTINGENCIES 10 000

Component 1: Ensuring safe reopening of schools and return of students, especially vulnerable and disadvantaged students 7 823

1.1 media campaign and community sensitization 318

Preparation of main messages for media campaign and sensitization 1 Lump sum 37 500 38

Diffusion of messages through radio and TV 1 Lump sum 93 500 94

Grassoots level communication 1 Lump sum 187 000 187

1.2 Ensuring schools are safe for re-opening 3 901

Hand washing devices Lump sum - 3 039

Preschools 2880 Unit 110 317

Primary schools 1995

0 Unit 110 2 195

Lower secondary education (LSE) 4800 Unit 110 528

Transf schools for provision of Water in schools where there are no water point - 840

Primary schools 3000 Nber of sch 250 750

LSE 225 Nber of sch 400 90

Support for school infirmaries 46 Nber of sch 470 22

1.3 Ensuring continuity of learning and tracking of student results 3 604

Remedial (catch-up) programs for students at risk of repetition i - 511

Assessment of students in key disciplines at the re-entry of schools 1 111 500 112

Remedial program 399

Remedial program in deprived communes 364



Remedial program in schools enrolling disability students 24



Improving pedagogic practice in classrooms (training of teachers) - 1 017

Preparation of teachers training modules primary 1 Lump sum 20000 20

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schools

Preparation of teachers training modules lower secondary schools 1 Lump sum 20000 20

Training of trainors primary schools 240 170 41

Training of trainors lower secondary schools 94 170 16

Training of teachers 920

Primary schools 7100 teachers 70 497

LSE 2820 teachers 150 423

Compensation of part of incidental costs paid for canteens

220000 Nber students 4,5 990

School kits for deprived communes and students with specific needs 1 087

Primaire: Kits for grades 1 and 2 school

72 500 Nber students 10,0 725

LSE: Grade 7 and 8 grades

16 500 Nber students 20,0 330

Kits for students with specific needs 800 Nber students 40 32

Component 2 : Strengthening education system resilience in the medium and long term 1 252

2.1 Expanding sustainable remote learning opportunities 895

Setting up the enabling environment for distance learning 131

Development of partnership with radio and TV station 1 Lump sum 18 750 19

Equipmnt of rooms for audio and visual production 2 Lump sum 56 250 113

Supporting teachers 613

Training teachers in digital skills 269

Primary teachers 600 Lump sum 250 150

Secondary 400 Lump sum 250 100

Assessment of digital support needs by teachers 1 Lump sum 18 750 19

Purchase of electronic tablets to teachers involved in the development of distance learning content 1000 250 250

Implementation of pilot blending class 1 93 750 94

Production of pilot distance learning materials in key disciplines 1 151 500 152

2.2 Building capacity to anticipate and cope with future shocks in education 356

Development of a national strategy for education and learning continuity 1 93 750 94

Preparation of action plan 1 37 500 38

Drawing lessons from COVID-19 crisis (including in other countries) 1 93 750 94

Capacity building and coordination among actors 1 75 000 75

Update of essential knowledge of curruculum 75 000 -

development of methodology to identify vulnerable and 1 56 250 56

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at risk students

Component 3 : Ensuring monitoring, management and coordination of the project 775

Salaries of 2 Assistants to be recruited 18 month 2 600 47

Salaries of 2 safeguard Specialists to be recruited 18 month 4 000 72

Collection of school data on regular basis 1 125 000 125

Support to STP 1 52 000 52

Collection of Citizen feedback 1 75 000 75

Equipment for virtual meetings, conference calls, and web conferencing in the MEMP and MESFTP 1 300 000 289

Training of staff for the use of equipment purchased 1 10 000 10

Other management and coordination costs 1 105 000 105

Bank supported cost 1 150

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ANNEX 3- Key Education Sector Challenges Prior to the COVID-19 Pandemic

Access and Retention 81. Despite achievements in terms of increased access to education, significant challenges remain in both access and retention in primary schooling. Improvements in coverage have not meant that all children and youth are able to access schooling in Benin. A 2015 survey found that 25 percent of children aged 5 to 17 years never attended school, while 5 percent who did attend, dropped out. A significant proportion drop out before the end of primary school. The comparison of the intake rate and the completion rate shows a gradual decline in access rates from Grade 1 to the final year of lower secondary education, reflecting a real retention problem. For example, in 2018/19, the gross access rate to CI (Grade 1) was 144 percent, but the same indicator for CM2 (Grade 6), was only 54.8 percent. This illustrates that a large number of children do not reach the end of primary school and therefore have very little chance of acquiring the skills necessary to become and remain literate during their adult life. According to the World Bank’s HCI (October 2018) for Benin, a child who starts school at age four can expect to complete 9.3 years of school by her/his 18th birthday. However, when factoring in what children actually learn, expected years of school drops to only 5.7 years. 82. There are persistent and considerable geographic and social disparities in the provision and quality of primary education services. The 12 regions (see map in Annex 2) of the country can be classified into four groups with regards to Gross Intake Rate (GIR) and PCR. The first group includes the Alibori region where the primary GIR (35 percent) and PCR (24 percent)27 are particularly low. The second group includes the Atacora and Borgou regions, which both have an average primary GIR of 68 percent and a PCR of 56 percent and 47 percent, respectively. The third group is comprised of Atlantique, Collines, Couffo, Donga, Plateau and Zou regions, where the primary GIR is between 80 and 90 percent and the PCR between 56 and 65 percent. The fourth group includes the regions of Littoral, Ouémé, and Mono, which had a relatively high primary GIR of 97 percent and a high PCR of 73 percent. According to the 2016 statistical yearbook, there are 20 deprived school districts where the PCR is below 50 percent. A total of 11 out of the 20 deprived school districts, are in the Alibori and Borgou regions.28 83. The gender gap widens as students move through the education system. Although the difference in enrollment rates and completion rates between boys and girls at the primary level is relatively small (PCR is 66 percent for girls vs 71 percent for boys), the gender gap widens as students move through the education system, with girls’ enrollment consistently lagging behind that of boys. Indeed, while the intake rate for girls is 62 percent and 70 percent for boys in Lower Secondary Education (Premier Cycle de l’Enseignement Secondaire Général, LSE), completion rates are only 39 percent for girls while these are 51 percent for boys. The difference between girls and boys becomes more pronounced in upper secondary education (USE) where girls’ enrollment rates are no more than 18 percent in the last grade (Terminale) against 37 percent for boys. Quality of education 84. Learning outcomes are low at the primary level. Most primary school students do not achieve the minimum learning outcomes in the core disciplines (French and Mathematics29), particularly in the early grades. The regional assessment for Francophone countries or Programme d’Analyse du Secteur de l’Education de la CONFEMEN (PASEC) carried out in the 2013-14 school year showed that: (i) only 6.3 percent of second grade students (CP)

27 The source for access rates used here is EMICOV 2015. 28 All six of the districts in Alibori and five out the eight districts in Borgou, are classified as deprived according to the 2016 statistical yearbook. 29 PASEC assessments are limited to two core disciplines: French and Mathematics.

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had the minimum competences required in French language and only 33.5 percent were above the established threshold in Mathematics; and (ii) 51.7 percent of sixth grade students (CM2) had the minimum competences required in French and 39.8 percent in Mathematics. Consequently, Benin was ranked penultimate among the 10 countries30 evaluated for Grade 2. By contrast, by the end of primary education (CM2), Beninese students were better ranked: 3rd in French and 4th in Mathematics among the same 10 countries evaluated. However, progress in Mathematics in Grade 6 is considered insufficient for students to fruitfully partake in Lower Secondary Education (LSE). The World Bank’s HCI shows that Benin’s harmonized test score31 is 384, while the scores for the neighboring countries were as follows: Burkina Faso 404; Togo 384; Niger 305; Ghana 308; and Nigeria 329. 85. National exam results confirmed that student learning is low in reading/written expression and mathematics, both of which are core disciplines. For example, analysis of the results of the 2015 Primary School Certificate (Certificat d’Etudes Primaires, CEP) exam shows that, while the official pass rate was 86 percent, only 32.5 percent of students who successfully passed the exam obtained the average score in reading; the average scores in written expression and mathematics were only 43.8 percent and 36.7 percent, respectively. These results are similar in secondary education. The results of the 2015 exam for the LSE Certificate (Brevet d’Etudes du Premier Cycle, BEPC) by discipline was very low (less than 50 percent), and extremely low in the scientific disciplines (Mathematics and Life and Earth Sciences), where pass rates did not exceed 10 percent. For the Baccalaureate exam (exam at the end of USE), results have varied over time – ranging from 23.7 percent to 37.2 percent over the 2010-2016 period, indicating that the quality of education at all levels needs to be significantly improved. 86. Low learning outcomes may be explained by, among others, the following factors, each of which is described in further detail below:

✓ Increased enrollment rates have led to overcrowded classrooms and have contributed to worsening learning conditions;

✓ Limited content knowledge of teachers; ✓ Limited pedagogical skills of teachers; ✓ Outdated and inadequate curricula particularly at the LSE level; ✓ Limited impact of in-service trainings on improving teacher performance; ✓ Insufficient support to teachers from educational advisers and inspectors; and ✓ Weak management and governance of the sector as mentioned above.

87. It should be noted that the Benin Global Partnership for Education Phase 3 Project, financed by a Global Partnership for Education grant in the amount of US$18.9 million, is attempting to address part of these challenges. The project was approved by the World Bank’s Africa Regional Vice President on July 17, 2019 and the grant agreement was signed on September 19, 2019. The project development objectives are to: (i) improve the quality of teaching and learning in basic education with an emphasis on the early grades; and (ii) strengthening equity in primary education, particularly in four regions of the country.

30 Benin, Burkina, Burundi, Cameroon, Congo, Cote d’Ivoire, Niger, Senegal, Chad and Togo. 31 This is on a scale where 625 represents advanced attainment and 300 represents minimum attainment.

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ANNEX 4- KEY RISKS

. 88. Political and governance risks are considered moderate. Lack of certainty regarding political and governance developments creates a substantial risk. As noted by the Government Action Program (GAP), “corruption continues to affect, to an alarming degree, the functioning of all sectors”. The President had proposed to revise the Constitution to foster transparency and accountability by public officers, but in April 2017 the National Assembly rejected the proposal. The current administration has ambitious public investment plans, rooted in electoral promises, and has demonstrated a willingness to push the public investment envelope beyond the levels and parameters agreed with the World Bank and the International Monetary Fund (IMF), as specified under the IMF’s Extended Credit Facility (ECF) program 2017-2020. The Government has proposed “innovative financing” approaches to fund its ambitious investment plan, which may have a significant impact on the budget and public debt levels and may now be at risk given the COVID-19 outbreak with subsequent impacts on the country’s public budget accounts. To mitigate this risk, multilateral institutions support the Government by monitoring the Government’s proposal. Within the context of the IMF Program, the Government refrained from entering into any pre-financing contracts. This commitment is a continuous performance criterion of the IMF-supported program, which partially mitigates political and governance risks. Despite the mitigation measures, a residual risk remains regarding the lack and/or limit in implementing adopted reforms and processes. However, there is only a moderate risk that the political and governance risk will affect the achievement of the PDO. 89. Macroeconomic risk is moderate: The global economic recession due to the COVID-19 pandemic is still materializing and uncertainty remains high, with potentially severe macroeconomic implications for Benin. A protracted and deeper crisis (including a longer border closure with Nigeria) would further slowdown growth, weakening tax revenue collection while expenditure steeply rise, thus posing risks to fiscal sustainability. The financing of the wider deficit will also weigh on debt sustainability in the medium term. Volatile commodity prices could pose up and downside risks to Benin as a net oil importer and cotton exporter. These risks increase as the outbreak continues. Additionally, the conclusion of the IMF ECF arrangement in May 2020 removes one of the strong anchors of the current macroeconomic framework. There are mitigating factors. The GoB’s good track record on macroeconomic and public finance management, including through the successful completion of the ECF program (2016-19), as well as BCEAO’s monetary and macroprudential measures. The GoB has also expressed interest in continuing their medium-term collaboration with the IMF after the current program expires. The WB remains strongly engaged in policy dialogue with the MEF.

90. Sector Strategies and Policies risk is moderate. In terms of sector strategies and policies, the proposed activities are embedded within the COVID-19 education plan which was developed by the education representatives in Benin in close collaboration with the key development partners. It covers all education sub-sectors and includes a costed operational plan. One risk is that the education sector budgets may be cut affecting overall service delivery in the education sector. However, considering the importance given to the education sector by the Government, the percentage of the budget cut will be carefully controlled.

91. Technical design of the project is considered a moderate risk. The risk is related to potential delays in budgeting and disbursements, since the project is being prepared when the budget cycle, and the first supplementary budget process for FY 2019/20 has been completed. Given uncertainties surrounding the COVID-19 situation, including potentially further school closures in the near future, implementation will be challenging and may encounter delays. To mitigate this risk, the proposed Project will ensure strong ownership by the Government, with dedicated leaders and appropriate technical staff involved in implementation and monitoring. Implementation will build on activities already underway (although on a smaller scale). The proposed Project will rely on lessons learned from successful programming in other countries, particularly those in the region. In addition, information gathered from the monitoring system and citizen engagement will guide implementation

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adjustments. The measurement of results will require reliable and timely data, which are currently lacking. The project will place emphasis at the onset on the design of a reliable data collection instrument and strong data collection plan. Taking into account the mitigation measures, the risk is considered moderate. 92. Institutional capacity for implementation and sustainability risk is moderate. Technical departments of MEMP and MESFTP will oversee the implementation of their respective activities. The main factor determining the risk rating is the weak capacity at central, regional and school levels. To mitigate the implementation risks, the proposed Project will adopt a capacity-building approach with specific activities to be financed. Under Component 3, the monitoring, management and coordination of the project will be ensured. In addition, under Component 2.2, the project will finance capacity building activities to anticipate and cope with future shocks in education. In other words, the objective of sub-component 2.2 is to build resilience of the education system in Benin and to reduce implementation challenges. A detailed implementation plan will be developed so that required human resources can be mobilized and necessary capacity building activities be provided.

93. Fiduciary risk is moderate. Although there are adequate legal, regulatory and institutional frameworks in place in Benin on fraud and anti-corruption, this has not yet translated significantly into corruption reduction in the country. Control bodies do not have sufficient human and financial resources, and their capacities remain limited. In terms of procurement, the Government has put in place strong countering measures, in particular a new public procurement code (October 2017). The latter provides for the professionalization of the public procurement system along with a number of other measures designed to address systemic risks. However, the new procurement code is not yet fully operational. Systematic bottlenecks in the procurement signing contracts in the country can cause long delays in processing transactions even if the UATS has significant experience with World Bank procedures and its performance is considered satisfactory. The World Bank will continue to monitor closely the quality of fiduciary management and adjust in approach should the need arise. 94. Environmental and Social risks are low. The proposed activities of the project do not include classrooms construction; all activities described in the proposed three components will focus on : (i) ensuring safe re-opening of schools and return of students, especially vulnerable and disadvantaged students; (ii) strengthening education system resilience in the medium and long term; and (iii) ensuring monitoring, management and coordination of the project. None of the activities are expected to have adverse environmental implications. Some activities of the project are expected to primarily generate positive social impacts, particularly among vulnerable groups targeted by the proposed Project. Risks related to labor and working conditions will be minimal. The proposed Project’s activities aim to ensure effective continuity of student schooling and learning during and after the COVID-19 pandemic, while mitigating against the spread of the virus. There is therefore no risk of land acquisition or resettlement as no civil works are envisaged. Similarly, the proposed Project will not affect indigenous communities. Regarding other social aspects (gender, citizen engagement, disability) the impacts of the project are expected to be positive. It will be important to adopt a gender-sensitive approach to enhance education opportunities for female students.

95. Stakeholder related risks are low. The likelihood of stakeholders opposing the project is low. The proposed Project’s development objectives are strongly aligned to the Government of Benin’s strategic agenda for the education sector. In addition, the overall design and key objectives have been extensively discussed with both the Government and key development partners, and all of the relevant stakeholders have endorsed the proposed operation. Donor interventions are well-coordinated, and attention has been paid to ensure proper complementary of activities.

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ANNEX 5: Map of Benin showing districts with a PCR lower than 50%

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Annex 6- Detailed Implementation Plan

Detailed implementation plan

COMPONENT/SUB-COMPONENT Expected

results Total cost

US$

Implementation period

Responsible structure

Structures involved

Activity // Sub-activity T1 T2 T3 T4 T1 T2

PROJECT COSTS WITHOUT CONTINGENCIES

9 850

Component 1: Ensuring safe reopening of schools and return of students, especially vulnerable and disadvantaged students

7 823

1.1 media campaign and community sensitization

Communities and children access sensitization campaigns Schools are safe for return

318

SGM/MEMP MEMP: INFRE, IGPM, DEM and DEP MESTFP: SGM, DIPIQ and INIFRCF

Preparation of main messages for media campaign and sensitization

38

Diffusion of messages through radio and TV

94

Grassoots level communication

187

1.2 Ensuring schools are safe for re-opening

Schools are re-opened in a secure environment

3 901

DESG/MESTFP MEMP: INFRE, and DEP MESTFP: INIFRCF UNICEF

Hand washing devices (Preschools)

317

Hand washing devices (Primary schools)

2 195

Hand washing devices (Lower secondary education (LSE))

528

Transf schools for provision of Water in schools where there are no water point (Primary schools)

750

Transf schools for provision of Water in schools where there are no water point (LES)

90

Support for school infirmaries 22 1.3 Ensuring continuity of learning and tracking of student results

Dropouts are contained, especially among girls

3 604

DEP/MEMP MEMP: INFRE, DIIP and MESTFP: DESG, DIPIQ and INIFRCF

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results Total cost

US$



Structures involved


UNICEF

Assessment of students in key disciplines at the re-entry of schools

112

Remedial program in deprived communes (Primary school)

340

Remedial program in deprived communes (LES)

35

Remedial program in schools enrolling disability students (Primary schools)

20

Remedial program in schools enrolling disability students (LES)

4

Preparation of teachers training modules primary schools

20

Preparation of teachers training modules lower secondary schools

20

Training of trainors primary schools

41

Training of trainors lower secondary schools

16

Training of teachers (Primary school)

497

Training of teachers (LES)

423

Compensation of part of incidental costs paid for canteens

990

School kits for deprived communes and students with specific needs (Primaire: Kits for grades 1 and 2 school)

725

School kits for deprived communes and students with specific needs (LSE: Grade 7 and 8 grades)

330

Kits for students with specific needs

32

Component 2 : Strengthening education system resilience in the medium and long term

1 252

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results Total cost

US$



Structures involved


2.1 Expanding sustainable remote learning opportunities

Established improved remote learning system post crisis Students have access to self-learning materialsand teachers are trained in distance teaching

895

INFRE MEMP: DEP, DEM, and IGPM, MESTFP: DIPIQ, DESG

Development of partnership with radio and TV station

19

Equipmnt of rooms for audio and visual production

113

Training teachers in digital skills (Primary teachers)

150

Training teachers in digital skills (Secondary)

100

Assessment of digital support needs by teachers

19

Purchase of electronic tablets to teachers involved in the development of distance learning content

250

Implementation of pilot blending class

94

Production of pilot distance learning materials in key disciplines

152

2.2 Building capacity to anticipate and cope with future shocks in education

Ministry’s capacity is strengthenedto better respond to future crisis Effective data system to identify at-risk students is

356

DPP/MEMP MEMP: INFRE, IGPM, DEM and DEP MESTFP: DPP, DIPIQ and INIFRCF

Development of a national strategy for education and learning continuity

94

Preparation of action plan

38

Drawing lessons from COVID-19 crisis (including in other countries)

94

Capacity building and coordination among actors

75

Update of essential knowledge of curruculum

-

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results Total cost

US$



Structures involved


development of methodology to identify vulnerable and at risk students

56

Component 3 : Ensuring monitoring, management and coordination of the project

Work plan and budget is set up Quarterly reporting Project communication is facilitated Grievance redress mechanism is established

775

UATS MEMP:DPP, INFRE, DEP, DEM and DPP MESTFP: INIFRCF, DPP, DIPIQ and DPP CBO/EPT

Salaries of 2 Assistants to be recruited

47

Salaries of 2 safeguard Specialists to be recruited

72

Collection of school data on regular basis

125

Support to STP 52

Collection of Citizen feedback 75

Equipment for virtual meetings, conference calls, and web conferencing in the MEMP and MESFTP

289

Training of staff for the use of equipment purchased

10

Other management and coordination costs

105

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