Document of The World Bank PROJECT APPRAISAL...
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Document of The World Bank FOR OFFICIAL USE ONLY Report No: 61389 - SN PROJECT APPRAISAL DOCUMENT ON A PROPOSED CREDIT IN THE AMOUNT OF SDR 63.9 MILLION (US$101.3 MILLION EQUIVALENT) TO THE REPUBLIC OF SENEGAL FOR THE TERTIARY EDUCATION GOVERNANCE AND FINANCING FOR RESULTS PROJECT May 2, 2011 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. Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized
Transcript of Document of The World Bank PROJECT APPRAISAL...
Document of
The World Bank
FOR OFFICIAL USE ONLY
Report No: 61389 - SN
PROJECT APPRAISAL DOCUMENT
ON A
PROPOSED CREDIT
IN THE AMOUNT OF
SDR 63.9 MILLION
(US$101.3 MILLION EQUIVALENT)
TO THE
REPUBLIC OF SENEGAL
FOR THE
TERTIARY EDUCATION GOVERNANCE AND FINANCING FOR RESULTS PROJECT
May 2, 2011
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.
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CURRENCY EQUIVALENTS
(Exchange Rate Effective March 2011)
Currency Unit = CFA franc
CFAF 471 = US$1
US$1.58 = SDR 1
FISCAL YEAR
January 1 – December 31
ABBREVIATIONS AND ACRONYMS
AFdB African Development Bank,
AGS Accelerated Growth Strategy
ARMP Agence de Régulation des Marchés Publics, Regulatory Agency for
Public Procurement
BAC Baccalauréat, Baccalaureate
BCEAO Banque Centrale des Etats de l'Afrique de l'Ouest, Central Bank of West
African States
BoD Board of Directors
CAMES Conseil Africain et Malgache pour l'Enseignement Supérieur, African
and Malagasy Council for Higher Education
CAS Country Assistance Strategy
CEM Country Economic Memorandum
CM Commission des marchés, Procurement Committee
CNESUP Conseil National pour l'Enseignement Supérieur, National Council for
Tertiary Education
COUD Centre des œuvres universitaires de Dakar, Dakar University Social
Center
CPAR Country procurement assessment report
CPC Cycle professionnel Court, Short-Term Professional Program
CPM Cellule de passation des marchés, Procurement Unit
CRDI/ IDRC Centre de Recherche pour le Developpement International,
International Development Research Center
CROUS Centre Regional des Oeuvres Universitaires de Saint Louis, Saint-Louis
University Regional Social Services Center
DA Designated Account
DAGE Direction de l'Administration Générale et de l'Equipement, Directorate
of General Administration and Equipment
DCEF Direction de la Coopération Economique et Financière, Directorate of
Economic and Financial Cooperation
DDI Direction de la Dette et de l'Investissement, Directorate of Debt and
Investment
DHE Directorate of Higher Education
DGCBEP Direction Générale de la Construction des Bâtiments et Edifices Publics,
General Directorate for Construction of Public Buildings
EIDES Equité et Incidence des Dépenses dans l'Enseignement Supérieur,
Equity and incidence of tertiary education expenditure
ESMF Environmental and Social Management Framework
ESP Ecole Supérieur Polytechnique, Higher Polytechnic School
FM Financial Management
GDHE General Directorate of Higher Education
GDP Gross Domestic Product
GER Gross Enrollment ratio
GOS Government of Senegal
GPN General Procurement Notice
HEI Higher Education Institution
IA Implementing Agency
ICT Information and Communication Technology
IDA International Development Association
IFR Interim Financial Report
ISEP Institut Supérieur d’Etudes Professionnelles, Tertiary Education
Vocational Institute
IT Information Technology
ITEIS Integrated Tertiary Education Information System
LMD Licence Master Doctorat, Bachelor's, Master's, PHD
MOE Ministry of Education
MOEF Ministry of economy and finance
MOHESR Ministry of Higher Education and Scientific Research,
NCB National Competitive Bidding
NQAA National Quality Assurance Authority
OECD Organization for Economic Cooperation and Development,
ORAF Operational Risk Assessment Framework
PAES Projet d’Amelioration de l’ Enseignement Supereiur, Tertiary education
improvement project
PBC Performance-Based Contract,
PC Code de Passations de Marchés, Procurement Code,
PDEF Programme Decennal de l'éducation et de la Formation, Ten-Year
Education and Training Program
PEQT2 Projet Education de Qualité pour Tous 2, Quality Education for All
Project II
PER Public Expenditure Review
PFM Public Finance Management
PRSC Poverty Reduction Strategy Credit
QAU Quality Assurance Unit
RPF Resettlement Policy Framework,
RUC Regional University Centers
SBD Standard Bidding Document,
SIL Specific Investment Loan,
SPN Specific Procurement Notice
SYSCO-OHADA Système Comptable OHADA, OHADA accounting system
TA Technical Assistance
TEGFR Tertiary Education Governance and Financing for Results
TES Tertiary Education System
TOR Terms of Reference
TEI Tertiary Education Institution,
UCAD Université Cheikh Anta Diop of Dakar, Cheikh Anta Diop University of
Dakar
UGB Université Gaston Berger, Gaston Berger University
WAEMU West African Economic and Monetary Union
Regional Vice President: Obiageli Ezekwesili
Acting Country Director: McDonald Benjamin
Sector Director:
Acting Sector Manager:
Ritva Reinikka
Peter Nicolas Materu
Task Team Leader: Atou Seck
Table of Contents
I. Strategic Context ............................................................................................................................... 1
A. Country Context ........................................................................................................................... 1
B. Sectoral and Institutional Context ................................................................................................ 2
C. Higher Level Objectives to which the Project Contributes ........................................................... 8
II. Project Development Objectives ........................................................................................................ 8
A. PDO ............................................................................................................................................. 9
B. Project Beneficiaries .................................................................................................................... 9
C. PDO Level Results Indicators ...................................................................................................... 9
III. Project Description .......................................................................................................................... 9
A. Project components ...................................................................................................................... 9
B. Project Financing ....................................................................................................................... 12
1. Lending Instrument ................................................................................................................. 12
2. Project Cost and Financing .................................................................................................... 12
C. Lessons Learned and Reflected in the Project Design ................................................................ 12
IV. Implementation .............................................................................................................................. 13
A. Institutional and Implementation Arrangements ......................................................................... 14
B. Results Monitoring and Evaluation ............................................................................................ 15
C. Sustainability.............................................................................................................................. 15
V. Key Risks and Mitigation Measures ................................................................................................ 16
VI. Appraisal Summary ....................................................................................................................... 18
A. Economic and Financial Analysis .............................................................................................. 18
B. Technical.................................................................................................................................... 19
C. Financial Management ............................................................................................................... 20
D. Procurement ............................................................................................................................... 21
E. Social ......................................................................................................................................... 22
F. Environment............................................................................................................................... 22
Annex 1: Results Framework and Monitoring .......................................................................................... 24
Annex 2: Detailed Project Description .................................................................................................... 32
Annex 3: Implementation Arrangements ................................................................................................. 39
Annex 4: Operational Risk Assessment Framework (ORAF) ................................................................... 56
Annex 5: Implementation Support Plan .................................................................................................... 60
Annex 6: Economic and Financial Analysis ............................................................................................. 63
Annex7: Team Composition ..................................................................................................................... 78
Annex 8: Development Policy Letter ....................................................................................................... 79
i
PAD DATA SHEET
Senegal
Tertiary Education Governance and Financing for Results Project
PROJECT APPRAISAL DOCUMENT
Africa Region
Human Development - Education
Date: May 2, 2011
Country Director: McDonald Benjamin
Sector Director: Ritva Reinikka
Sector Manager: Peter Nicolas Materu
Team Leader: Atou Seck
Project ID: P123673
Lending Instrument: Sector Investment
Loan (SIL)
Sector(s): Tertiary education (70%); Public
administration- Education (30%)
Theme(s): Education for the Knowledge Economy
EA Category: B - Partial Assessment
Project Financing Data:
Proposed terms:
[ ] Loan [ X] Credit [ ] Grant [ ] Guarantee [ ] Other:
Source Total Amount (US$ M)
Total Project Cost:
Co-financing:
Borrower:
Total Bank Financing:
IBRD
IDA
New
Recommitted
127.3
26.0
101.3
101.3
101.3
Borrower: Republic of Senegal
Responsible Agency: Ministry of Higher Education and Scientific Research
Contact Person: Professor Papa Gueye
Telephone No.: +2213382174749
Fax No.:+221338214745
Email:[email protected]
Estimated Disbursements (Bank FY/US$ m)
FY FY12 FY13 FY14 FY15 FY16
Annual 10 15 25 28 23.3
Cumulative 10 25 50 78 101.3
ii
Project approval date: May 26, 2011
Project Implementation Period: May 26, 2011- January 31, 2016
Expected effectiveness date: September 30, 2011
Expected closing date: June 30, 2016
Does the project depart from the CAS in content or other significant
respects?
○ Yes X No
If yes, please explain:
Does the project require any exceptions from Bank policies?
Have these been approved/endorsed (as appropriate by Bank
management?
Is approval for any policy exception sought from the Board?
○ Yes X No
○ Yes ○ No
○ Yes X No
If yes, please explain:
Does the project meet the Regional criteria for readiness for
implementation?
X Yes ○ No
If no, please explain:
Project Development objective
The project development objective is to enhance the efficiency and quality of the higher education
system and the oversight and accountability of higher education institutions (HEI).
iii
Project description
The proposed project supports the Government‟s sector program/strategy/policy and integrates the
implementation of policy reforms into its design. The project will support investment and policy
reforms that will: (i) improve the Government‟s capacity to improve the management of the tertiary
education system; (ii) create incentives by introducing a new financing mechanisms to improve: (a) the
financial accountability in the service delivery by HEIs; (b) the efficiency of the institutions by reducing
the average time to graduate; and (iii) the learning environment in tertiary education institutions.
The project components are:
Component 1: Strengthening the governance of the tertiary education system by: (i) supporting the
implementation of higher education governance bodies including the General Directorate of Higher
Education, the National Quality Assurance Authority and University Boards of Directors; (ii) supporting
Project implementation and management; (iii) developing a monitoring and evaluation system; and (iv)
carrying out specific studies to generate more knowledge for the system.
Component 2: Improvement of the effectiveness of the tertiary education institutions by: (i) creating
incentives for better effectiveness and efficiency of HEIs in public resources utilization through
performance-based contracts between the Government and the universities to improve accountability
and efficiency in resource management; (ii) the diversification of the tertiary education system and the
increase in access to short-term tertiary education by creating a new Tertiary Education and Vocational
Institute in Thies and establishing an information communication technology (ICT)-facilitated network;
and (iii) the rehabilitation and expansion of Senegalese HEIs.
Safeguard policies triggered?
Piloting the Use of Borrower Systems to Address Environmental and
Social Issues in Bank-Supported Projects (OP/BP 4.00)
Environmental Assessment (OP/BP 4.01)
Natural Habitats (OP/BP 4.04)
Forests (OP/BP 4.36)
Pest Management (OP 4.09)
Physical Cultural Resources (OP/BP 4.11)
Indigenous Peoples (OP/BP 4.10)
Involuntary Resettlement (OP/BP 4.12)
Safety of Dams (OP/BP 4.37)
Projects on International Waters (OP/BP 7.50)
Projects in Disputed Areas (OP/BP 7.60)
○ Yes X No
X Yes ○ No
○ Yes X No
○ Yes X No
○ Yes X No
X Yes ○ No
○ Yes X No
X Yes ○No
○ Yes X No
○ Yes X No
○ Yes X No
Conditions and Legal Covenants:
Board presentation: None.
Financing Agreement Reference Description of
Condition/Covenant
Date Due
iv
Article 4.01 Adoption of the Administrative
and Financial Manual and the
Project Operational Manual,
both in form and substance
satisfactory to the Association.
Before effectiveness
Article 4.01 Recruitment in the DAGE of a
financial and administrative
officer and a procurement
specialist.
Before effectiveness
Article 4.01 The appointment within DGES
of a qualified head of DGES, as
well as qualified directors in
charge of: (i) the financing of
HEIs, including management of
the Performance-Based
Contracts; (ii) planning and
development of the national
information system; (iii)
academic and legal affairs; and
(iv) relations with private higher
education institutions, all in
accordance with the provisions
of the DGES Decree.
Before effectiveness
Article 4.01 The appointment of a qualified
director of the ISEP
Before effectiveness
Article 4.01 The set up of the financial and
accounting management
software for the Project,
including at the Universities‟
level, in a manner satisfactory to
the Association.
Before effectiveness
Schedule 2, Section IV, B1 (b) Recruitment of the external
monitoring and evaluation
experts
Before Disbursement of the
Performance based contracts
Schedule 2, Section IV, B1 (b) Recruitment by each University
of a qualified accountant and
setting up by each University of
a financial and accounting
management system suitable for
the monitoring of the Project
Before Disbursement of the
Performance based contracts
v
Schedule 2, Section V.1 (a)
Recruit the external auditors
which shall conduct the audits of
the Financial Statements of the
Project as well as the
Universities‟ Financial
Statements
No later than 4months after the
Effective Date,
Schedule 2, Section V.1 (b)
Appoint a consultant assuming
the functions of internal auditor
to perform quarterly ex-post
audits under terms of reference
and terms and conditions
acceptable to the Association.
No later than 6 months after the
Effective Date,
Schedule 2, Section V.1 (c)
Cap the scholarships allocated at
the national level to CFA 29
billion, and cap the foreign
scholarships to CFA 9 billion for
2012,
No later than December 31, 2012
Schedule 2, Section V.1 (d)
Provide the Association with an
audit report on the management
and allocation of scholarships
covering the year 2011
No later than March 31, 2012,
Schedule 2, Section V.2 Limitation on transfer of funds to
Universities under PBCs: (i)
receipt of internal and external
reports assessing Universities‟
performance; and (ii) receipt of
report on annual PBC allocation
to each University
1
I. Strategic Context
A. Country Context
1. Senegal’s economy has registered positive growth over the past decade. Notwithstanding
episodes of low growth,1 GDP has grown at an average rate of 4.1 percent a year and has nearly doubled
in size from CFAF 3.3 trillion in 2000 to CFAF 6.4 billion in 2010 (purchasing power parity of US$13.2
billion and US$23.8 billion).2 Although broad-based, growth in domestic output was led by the tertiary
(service) sector which grew at an annual rate of 6.5 percent, and by a dynamic telecommunications sector
in particular. Today, Senegal has the most competitive telecom sector in the West African economic and
Monetary Union (WAEMU) region. Further, according to the World Economic Indicators of
competitiveness, Senegal ranks among the top African countries in terms of innovation3. The primary
and secondary sectors have been relatively less productive, but nevertheless still registered positive
annual growth rates of 3.5 and 1.3 percent, respectively, over the past decade. The relatively high and
sustained level of growth is attributable to improvements in the business climate drawn principally from
an extended period of prudent macro-economic management, increased public investment in
infrastructure (notably in the road, port and aviation sectors) to facilitate transport and boost exports, and
increased resources for investment from remittances and savings which underwrote a sustained increase
in building construction.
2. The sustained upward trend in growth resulted in both higher job creation in the modern
sector and a decline in poverty. From 2000-2003, when economic growth was highest, the annual job
rate growth in the modern sector was more than double the annual performance of any year during the
previous decade.4 The fraction of the population falling below the poverty line dropped from 57 percent
in 2000 to 51 percent in 2005.5 Today, with a per capita income of about US$1,000 (US$1,800 in
purchasing power parity), Senegal is on the lower limit of the World Bank‟s classification of a middle-
income country. Despite these achievements and important competitive advantages, notably its
proximity to international markets and a history of peaceful democratic transitions, economic growth has
been lower than the average for Sub-Saharan Africa and is insufficient to boost standards of living to
levels found in emerging economies.
3. Over the medium-term, it is expected that there will be continued expansion in the
telecommunications, port, mining, education and health sectors . Recovery in the global economy
should help the tourism sector. With its port and a relatively good stock of educated workers, there is
potential for much stronger growth in Senegal, quite possibly in the manufacturing, horticultural, design
and tourism sectors, but significant efforts are needed to create an adequate investment climate.
Investment in high growth sectors will be dependent on political, macroeconomic and price stability,
adequate provision of electricity to the economic sectors, strong growth in remittances (itself a function of
global economic growth) and continued investment in telecommunications, port and mining sectors. For
these reasons, the Government of Senegal (Government) wants to better align its tertiary education
system to the country‟s competitiveness and growth agenda to improve the employability of graduates
and their impact on productivity and growth.
1 The downturns are attributed primarily to external shocks, notably to low rainfall in an agricultural sector that is largely
dependent on the elements, the international financial crises, and more recently to rising international oil and food prices. 2 International Monetary Fund, World Economic Indicators online, January 2011.
3 The high rating on innovation is due to a small number of capital intensive, internationally competitive large enterprises. World
Economic Forum, 2010. The Global Competitiveness Report 2010-2011. 4 World Bank 2010. Senegal Higher Education Public Expenditure Review, draft.
5 Senegal Poverty Monitoring Survey, ESPS 2006.
2
4. On the political side, while Senegal is becoming a mature democracy, the political climate in
the next few years is likely to become markedly more complex, with upcoming presidential elections
in 2012. Universities in Senegal have been arenas of competition between political parties and in recent
years violent strikes and protests have resulted in serious disruptions and damage. Therefore, the policies
and reforms under the project would need to be supported by general consensus.
B. Sectoral and Institutional Context
Performance of Senegal’s tertiary education sector
5. Labor markets have provided strong signals for secondary school graduates to pursue
higher education. Over the last decade, university graduates have had lower unemployment rates, higher
wage differentials and higher lifetime earnings than other categories of workers. The recent Public
Expenditure Review (PER) 6 shows that workers with higher education training earn 40 – 45 percent more
than workers with secondary education. The ability of the labor market to absorb a growing labor force
with tertiary education depends not only on economic and job growth but also on the type of skills made
available to firms. Significant share of enterprises report skill shortages as an impediment to their
business. According to the 2003 World Bank Investment Climate survey, 18 percent of the manufacturing
enterprises cited a lack of labor skills as an impediment to their business. In the 2008 survey, 60 percent
of the largest and most productive enterprises reported inadequate skills as a major impediment to their
productivity.
6. Recent trends in university enrolment and employment opportunities suggest a widening of
the gap between skills with high demand and the education provided by public universities. Supply
chain analyses [GOS 2009] for Senegal‟s growth sectors project a continued strong demand for technical,
managerial and innovative skills in engineering, agro-industry, transportation, logistics, teaching, health
care, ICT, marketing, entrepreneurship and finance--programs in short supply at universities where
enrolment in arts and social sciences have boomed. At the same time, enrollments in science, applied
science, technology and medicine have fallen from 35 percent in 1991 to 25 percent in 2008, while
student demand for these programs exceeds places available. Approximately 17 percent of students are
enrolled in science and technology programs, which is low when compared to other African countries
where it is on average 22 percent and for OECD countries where it is 25 percent.
7. Only 3.5 percent of students are now enrolled in short-term professional and technical
programs. In contrast to the situation in Anglophone countries, the selection of candidates for short-term
professional courses in public higher education institutions is elitist such that only the best – and only a
few – of the holders of the baccalaureate certificate are able to enroll in these courses. Invariably,
therefore, students who obtain the two-year university diploma in technology (DUT or DEST) prefer to
continue their studies to become professional engineers, instead of joining the employment market.
Efficiency, finance and equity
8. The implementation of Senegal’s ten-year education program, (PDEF 2000-2010) has
resulted in considerable improvements in access, completion and transition rates for both primary
and secondary education. University enrollments have expanded from 59,400 in 2005 to 98,000 in
2010 representing a 15 percent annual growth rate. Women represent 33 percent of the total enrolment.
Tertiary education has diversified with an expanding private sector, the creation of public Regional
University Centers (CUR) in three provincial cities (Thies, Bambey, and Ziguinchor) and the introduction
6 World Bank, PER higher education, draft 2010
3
of two-year professional programs at the Universities of Dakar and Saint Louis. The University of Dakar
remains by far the largest university with about 60,000 students. Universities are for the most part
autonomous institutions with the responsibility to hire staff, determine programs, design curricula, collect
fees, select students and manage budgets. There are approximately 90 private Higher Education
Institutions (HEIs) enrolling 27 percent of students mostly in accounting, business, tourism,
communication, and ICT programs.
9. Internal efficiency in higher education is low . The low productivity of Senegal‟s public HEIs
is due to high repetition and low survival rates. University Checikh Anta Diop (UCAD) students in their
final year of the three-year bachelor‟s degree have spent an average of 5.2 years at the university, or 73
percent longer than the duration of the program. Dropout rates after the first year are about 30 percent
with another 25 percent repeating the first year. Progression rates are much better for programs where
enrollments are selective, student/teacher ratios are low and where the Licence-Master-Doctorat (LMD)
approach using the credit hours has been introduced. The fact that students can fail an entire year having
only failed one course, contributes to the excessively high repetition rates in non-LMD programs.
10. The Government of Senegal has historically invested a large share of public resources in
education generally, and in higher education in particular. Over the past decade, the Government has
allocated an average of 32 percent of its public recurrent budget to education (more than any other
African country), and 24 percent of that to tertiary education. In 2010, public expenditures on universities
captured 7.8 percent of total public recurrent expenditure representing 1.2 percent of GDP compared with
a Sub-Saharan average of 0.6 percent and an OECD average of 1.0 percent. Senegal spends more in
absolute value per student than most of the African countries and spends twice as much per student
compared to India, Madagascar, and Cote d‟Ivoire.
11. Since 2005, on average, 61 percent of total public expenditure on tertiary education has
been allocated to student subsidies and only 38 percent to the core university functions of teaching
and research. The high level of expenditures on tertiary education is primarily due to significantly
higher salaries of teaching staff relative to national income7 and high levels of expenditure for student
subsidies. Government commitment to provide all bacheliers with a place in a public university and all
students with scholarships has led to a rapid growth in student subsidies which have led to a crowding-out
of expenditures for core functions of the universities. Additionally, high teacher salaries limited the
recruitment of staff to accommodate the increasing student numbers. In 2009, a university professor at the
entry level earned a gross monthly salary highly competitive with salaries offered in many OECD
countries. The relatively high level of public financing has not, however, resulted in comparatively better
results.
12. University budgets and the financing of higher education need to be rebalanced .
Currently, budget appropriations for universities and scholarships have fallen regularly short of actual
financing needs. Universities typically receive budget contributions to support between 9 to 10 months of
functioning. As a result, almost all quality expenditures have been frozen and scarce budget resources
are used primarily to pay salaries. While income generating activities provide on average about 15% of
additional resources, this is not enough for universities to balance their budgets. The impossibility to
support planned operating costs negatively impacts the quality of service delivery. The costs of
scholarships are also under-budgeted and the policy of allocating scholarships to all incoming students is
unsustainable. Learning quality and students‟ living conditions suffer, in particular at the University of
Dakar, designed for 30,000 is overcrowded with 60,000 students.
7 Professor salaries are competitive with those in developed economies. On the domestic market, a starting assistant professor
earns 3.3 times more than an individual with a similar level of qualification working in formal sector. The salary represents 22
times GDP per capita. Starting full professors earn substantially more.
4
13. Student dissatisfaction and priorities. There is a great deal of student dissatisfaction with the
quality of programs because of late payment of scholarships, their perception that student residences and
student services are of extremely low quality, learning facilities are overcrowded, there is a lack of study
halls and internet connections, and registration and exam systems are poor. For the 2010/2011 school
year which officially started in October 2010, the registration of the vast majority of students in arts and
science was not confirmed until February 2011 due to delays in completing the second examination
session or late admission for students that were not able to be admitted in other universities. This of
course, leads to poor student performance and high failure and repetition rates. One survey and numerous
focus group meetings were held with students and it was clear that their priorities are: (i) better learning
facilities and working environment which would include access to ICT; (ii) courses that are linked to job
opportunities and especially two-year professional training; and (iii) healthy residences.
14. Inequality in resource allocation over the past 10 years has not improved. Studies in 2004
and 2005 showed that students in the top 50 percent of income groups received 4.3 times more education
subsidies than students in the bottom 50 percent. The 2002 scholarship policy to provide scholarships to
all students without an improvement in targeting to disadvantaged students and without any concomitant
increase in fees meant that an even larger share of expenditures have benefited wealthier students. A
recent survey8 showed that 60 percent of students benefiting from scholarships and social services came
from families where the father had a university or high school diploma. The number of Senegalese
students abroad that benefit from public scholarships has ballooned from 1,200 in 2000 to 5,600 in 2008,
representing one-third of all scholarships or 13 percent of total higher education expenditures. Many of
these students are allegedly studying programs available in Senegal and only an estimated 5 percent
return to Senegal at the end of their studies.
Governance and Management
15. HEIs operate with great independence but little accountability or national coordination .
The Ministry of Higher Education and Scientific Research (MOHESR) has little control over the HEIs
because of its weak technical capacity to coordinate the system. The Directorate of Higher education has
few technical staff, resources and little authority over HEIs and Rectors thus having little leverage to
effectively coordinate and monitor implementation of Government policy. This has created a situation
where: (i) data and performance of the sector are not aggregated and analyzed; (ii) each institution has
chosen its own path to introduce the LMD system without reference standards or mechanisms to control
the duplication of programs; (iii) there are numerous similar programs without an analysis of the need,
costs or coordination between institutions ; (iv) opening of numerous parallel fee-paying programs; and
(v) universities receive block grants from the Government without transparent and efficient allocation and
accountability arrangements.
16. The information management system for the sector is weak. The Ministry of Higher
Education and Scientific Research (MOHESR) does not receive records, reports on university outcomes
or audit reports. While data exists, university management information systems are not robust enough to
provide integrated administrative, pedagogic and financial information in a timely way to guide financial
decision-making and to the public for: (i) accreditation or quality assurance assessments focusing on
quality; (ii) the learning outcomes or insertion rates of students across universities; and (iii) internal
efficiency trends.
8 Equity and incidence of social expenditure in Senegal tertiary education survey, Enquete sur équité et l‟incidence des dépenses
sociales dans l‟enseignement supérieur au Sénégal, CRES and World Bank 2010
5
17. There is no mechanism to assess the quality of programs and university management of
Senegal’s public HEIs (which have considerable pedagogic autonomy) and the growing number of
private for-profit institutions. At the regional level, Conseil Africain et Malgache pour l’ enseignement
Superieur (CAMES) carries out accreditations of programs and Institutions. CAMES is a regional
organization in charge of quality assurance in francophone countries. However, HEIs are accredited on a
voluntary basis and there is no systematic evaluation of the quality of service provided by public and
private institutions.
18. ICT utilization as a mechanism to improve sector governance and delivery of learning
courses needs to be strengthened. All universities are trying to introduce ICT as a means to modernize
quality and service management. The lack of infrastructure, technical and financial resources, coherence
and synergies between institutions are the main constraints preventing an effective development of ICT.
19. Universities outside Dakar lack the minimum infrastructure and facilities are inadequate
for course delivery and UCAD Dakar is overcrowded. In Bambey, about half of the students study in
rented facilities, some of which are up to 25 km away from the main campus. Similarly, at the University
of Thies, most students and staff (including the rector) are in rented facilities. Construction of new
buildings is on-going but at a slow pace. In UCAD, there are currently 60,000 full-time students enrolled,
for a total faculty of 1,200 in facilities that can accommodate a maximum of 30,000 students. Some of
these faculties from UCAD are serving as part-time staff at the new universities in Thies and Bambey.
The Government strategy
20. The proposed project will help Senegal achieve its objective to become an export-oriented
and knowledge-based economy with high skill levels. These objectives and strategies are outlined in
the document Vers un Sénégal Emergent: Feuille de Route de l’Enseignement Supérieur a la lumière des
directives Présidentielles (2009-2015). This 2009 document updated the Government‟s 2005 higher
education policy document. The main strategic options retained are to: (i) expand access to Institutions
that offer shorter-term diploma programs, increase enrolment at the Université Gaston Berger (UGB),
reduce enrolments at the University of Dakar, and reinforce policies to encourage expansion of the private
sector; (ii) raise internal and external efficiency rates; (iii) improve the quality and relevance of programs
by putting in place systems of quality assurance, contracting mechanism for results, making courses more
relevant to the labor market and promoting greater use of information technology in teaching; (iv)
diversify sources of financing; and (v) modernize the governance and management systems of the higher
education system.
21. During the last five years, the Government has been implementing most of its strategic
options but needs additional expertise to improve the effectiveness and sustainability of the
reforms. Three regional universities have been created and fully financed by domestic resources but
without the necessary design and studies; the LMD system has been introduced to improve quality and
internal efficiency, but without the necessary coordination between institutions and quality assurance;,
governance systems remain weak; universities are raising more money but the minimum management
tools have not been developed to guarantee an effective utilization of the money, and a ICT network has
been constructed but additional technical and quality support is needed.
22. With the World Bank support, the Government has prepared a comprehensive Tertiary
Education Strategic Development Program (2011 – 2016) (TESDP) which operationalizes the
Government‟s higher education strategy and aligns the strategy with concrete reforms, specific activities,
indicators, timeframes, responsibilities and costs. The major policy reforms in the TESDP are described
below.
6
23. Governance reform at the system level: Aligning the governance system of tertiary education
with the government‟s strategy will result in the establishment of different bodies and organizations to
ensure transparency in decision-making and accountability in resource management. The program will
establish: (i) a General Directorate of Higher Education (GDHE) of Tertiary Education which will be
responsible for regulating the development of tertiary education and be an expert advisory unit to the
Minister of Higher Education. The GDHE will replace the Director of Higher Education and have greater
responsibility and authority ; (ii) a quality assurance system at the national level and in each university by
establishing goals, standards, performance indicators for programs and each specialization, faculty unit
and university; and (iii) a system to allocate scholarships according to merit and social criteria. In
addition, the Government intends to utilize ICT as a way to modernize the management, monitoring and
evaluation of the tertiary education system and for distance learning.
24. Governance at the institutional level. The Government intends to strengthen the management
and accountability of tertiary institutions by introducing Boards of Directors for each institution, which
would have the authority to approve university business plans, budgets, and audits and ensure the
pedagogic integrity of universities. This is already being done for newer universities, the UCA Law 67
and UGB Law 90 will have to be revised to replace University Councils. Rectors will be selected by
election by their university peers instead of being appointed by the Minister.
25. Improving efficiency in the utilization of available funds. Projections from the PER show that
the current system is not financially sustainable in the medium term as enrollments are estimated to
increase by about 15 percent annually. The Government has decided that it will take measures to improve
the effectiveness of the scholarship program by: (i) capping the level of national scholarships to CFA 29
billion as of 2011; (ii) reducing international scholarships expenditures to 9 billion in 2011 and (iii)
improving the transparency and management of scholarships, in particular by limiting the number of
years of eligibility and improving the merit basis of scholarship for graduate students. To implement
further reforms in this area, an extensive audit of scholarships allocation and management will be
completed by March 31st, 2012. The improved efficiency will release funds for quality improvements.
26. Improving results. Tertiary institutions will be asked to focus on improving results, both in
terms of quality and efficiency by creating financial incentives. A new system of performance-based
contracts will be put in place to allocate resources. To implement this at the institutional level, the
Government will: (i) amend legislation so as to give Boards of Directors at public universities more
authority in university governance and to act as guarantors and overseers of their autonomy within a
framework of accountability and transparency; and (iii) strengthen university autonomy by introducing
adequate financial reporting, clarifying the management and committee structures and strengthening
management systems.
27. Strengthen private participation in higher education development. At present, enrollment in
private HEIs represents about 27 percent of total enrollment at the tertiary level. Given that public
funding is already overstretched, enhancing further private participation is a necessity. This would require
better quality assurance to ensure that students and families are getting good value for their money.
Additionally, innovative mechanisms to provide access to investment funds by private institutions are
being envisaged.
28. Strengthening quality and relevance. The Government intends to generalize the LMD system
for all programs by 2015 which will improve the quality of programs and at the same time reduce
repetition rates. A national reference for standards and norms was established in 2010. The National
Quality Assessment Agency (NQAA) will be set up to ensure that programs and institutions are moving
towards international standards in teaching and research. To date, only the Faculty of Medicine at UCAD
7
has undergone an external quality assurance review. In addition, the NQAA will recommend which
programs should be established by addressing priorities and avoiding duplication in the development of
new courses and programs. It is estimated that about 100 programs will be externally reviewed over the
next three years. Student assessments will be used systematically to assess their satisfaction, with a view
to improving program quality.
29. Expanding access to short –term professional training. The Government will set up a network
of Tertiary Education and Vocational Institutes with close links to enterprises and economic priorities.
Instituts Supérieurs d’Etudes Professionnels (ISEPs) will provide two-year tertiary education programs
linked with the needs of high growth sectors outlined in paragraph 6. These institutions will respond to
students from different academic, social and financial backgrounds who want to acquire specific high-
level market-oriented skills in order to quickly enter the world of work.
30. Construction of a new tertiary education institution in Dakar. The Government will create a
new university in Dakar. This institution will provide more modern and relevant programs in social
sciences, economics, and liberal arts. It will help also reduce the pressure on UCAD and provide a better
learning environment for both institutions.
31. Cost of the strategy. Projections of the recurrent budget and the investment resources needed to
support the total implementation cost is US$684 million, of which there is a development cost of US$166
million over the period 2011-2016. The financing of this program including the IDA portion of financing
is outlined in paragraph 80..
Rationale for Bank Involvement
32. Senegal needs to introduce more incentives to foster a culture of quality and accountability
to create the labor force skills needed for a more competitive and faster-growing economy. This is
particularly true given the pressures felt in the sector, including a growing demand for tertiary education
and the need for greater relevance. The World Bank plays an important catalyst role in helping build
consensus and support for this reform by providing cutting-edge technical advice on policy design,
managing performance-based funding, quality assurance mechanisms, professional programs, M&E
systems, and implementation arrangements.
33. Over the past 10 years donors have focused on primary education . The Government‟s
priorities, in terms of public finance, have favored primary and higher education. As a result, the system
has developed in a lopsided fashion to the detriment of secondary and tertiary education and without due
attention to the policies that would improve the effectiveness and efficiency of tertiary education. To
ensure the continuity of gains made at the primary level and the financing needed for the massive
expansion of lower and upper secondary, the imbalances at the higher level will need to be addressed.
34. The World Bank is the only donor agency that has the global knowledge and resources to
address the systemic, institutional and social issues that bear on reforming higher education. Other
donors are looking to the Bank to assure a feasible and sustainable strategy in higher education that they
can support. The Bank is leading the analytical and technical work other donors will use as a basis for
additional financing. The Bank will also convene a donors meeting in support of the Government‟s
Tertiary Education Strategic Development Program (TESDP).
35. The World Bank brings knowledge and experience in reforming and developing higher
education from across the world. The World Bank is well placed to respond to the Government‟s
request to assist in implementing a more performance-based approach learning from previous Bank-
financed projects including those in Chile, India, Indonesia and Pakistan as well as in Canada and France.
8
The project builds on other Bank work in Senegal that supports the Government in reforming its public
financial management system and moving to performance-based budgeting in the Poverty Reduction
Strategy Credit (PRSC) series and in technical assistance.
C. Higher Level Objectives to which the Project Contributes
36. The Tertiary Education Governance and Financing for Results (TEGFR) project is
anchored in the first pillar of the Country Assistance Strategy (CAS) for 2007 – 20109 that aims at
accelerated growth and wealth creation in developing a knowledge economy . This is one of the key
objectives of the ambitious agenda set up by the Government‟s Accelerated Growth Strategy (SCA).
Bank support during the CAS period is needed in terms of skilled labor enhancement and the labor force
capacity to absorb and adapt new technologies. Central to building this pillar is ensuring that a skilled,
flexible, and well-balanced workforce supports Senegal‟s growth ambitions over the coming years. This
project will deepen reforms of tertiary education sector with an emphasis on: (i) rationalizing public
resources to promote financial sustainability and equity; (ii) strengthening the governance and
management of the sector by introducing more accountability at the sector level by establishing
mechanisms to improve the financial accountability of HEIs; and (iii) providing technical assistance to
put in place strong governance institutions to inform, coordinate and monitor tertiary education policies,
programs and quality.
37. Tertiary education reform is a key component in Senegal’s overall human resource
development plan as articulated by the accelerated growth strategy. In 2008, as a follow on to the
Government‟s Poverty Reduction Strategy and drawing on extensive analyses of the economy, business
climate and the experiences of emerging economies, the Government of Senegal developed its AGS
which aims to boost economic growth to 7 percent a year and impel Senegal into the category of an
emerging economy. It has two main components: (a) improving the business climate; and (b) focusing
incentives and public investment in five key economic sectors that have the potential for higher value
added, broad-based employment creation and boosting exports: agriculture and agro-industries, fisheries
and aqua-culture, information and communication technology (ICT), including business process
outsourcing, clothing manufacturing, and tourism, culture and arts.
38. Human Resource Development, particularly at the level of professional and university
education, forms a central part of the strategy to improve the business climate and boost
productivity.10
This calls on institutions of higher learning to produce a labor force with know-how and
a sense of innovation and with skills that are in demand in the economy. More specifically, it calls for: (i)
greater responsiveness of education establishments to the qualifications and competences needed by
enterprises, (ii) creation of university colleges that offer quality short-term degree programs, greater
collaboration between teaching, research institutions and enterprises, (iii) extensive ICT integration into
programs and research, and (iv) better and expanded university programs in enterprise development and
entrepreneurship.
II. Project Development Objectives
9 The CAS 2007-2010 is extended to cover 2011. Next CAS is planned for November 2011..
10 According to the World Economic Forum indicators of competitiveness, Senegal lies in the bottom 20 percent of countries
world-wide in the quality of its human capital stock. Studies of the investment climate also showed that 60 percent of the most
productive enterprises reported the availability of human resources to be a major constraint to their businesses.
9
A. PDO
39. The project development objective is to enhance the efficiency and quality of the higher
education system and the oversight and accountability of HEIs.
B. Project Beneficiaries
40. The direct project beneficiaries are tertiary and secondary education students, academic and
administrative staff of universities and tertiary education institutions, and managers in public and private
tertiary education institutions. Indirect beneficiaries are the Senegalese society and the private sector
enterprises and entrepreneurs that will benefit from the improvement in the quality of the trained youths.
C. PDO Level Results Indicators
41. Indicators that would measure progress towards the development objective include:
a. Academic programs that meet minimum quality standards as set by the NQAA (%) (Quality).
b. Promotion rate for the first year by university (%) (Efficiency).
c. Universities with performance-based contracts negotiated and overseen by GDHE (%)
(Oversight)
d. Institutions that achieve at least 80 percent of the annual targets set in the performance-based
contracts (%) (Accountability)
e. Direct Project Beneficiaries (number), of which female (%)
- Students in the new ISEP School.
- Students enrolled in the HEIs
42. Table 1 of annex 1 clarifies the project results chain as well as the link between the PDO and each
key performance indicator.
III. Project Description
A. Project components
43. The proposed project supports the Government’s sector program and strategy and
integrates the implementation of policy reforms into its design. The project will support investment
and policy reforms that will: (i) strengthen the Government‟s capacity to improve the management of the
tertiary education system; (ii) create incentives by introducing a new financing mechanism to improve:
(a) the financial management and accountability in the quality of service delivery by HEIs; (b) the
efficiency of the institutions by reducing the average duration to obtain a tertiary education graduation
and improving the promotion rates; (iii) the development of a short term technical and vocational
education linked with the labor market and the growth sectors; and (iv) the improvement of the learning
environment.
44. The project components are summarized below.
Component 1: Strengthening the governance of the tertiary education system (IDA US$7.1million,
Government US$1.0) For this component the concept of governance includes the aspects of providing:
(a) reliable information to improve both transparency and decision-making: (b) standards and
benchmarks to allow for measuring results and facilitating accountability: (c) providing incentives to
encourage good management and create a culture of results; and (d) accountability mechanisms to hold
service providers answerable for processes and outcomes.
10
Sub-component 1.1: Operationalizing Governance Bodies (IDA US$1.6)
45. This sub-component would support sub-sector-wide initiatives directed towards improving
the overall governance and management of higher education. At the system level, the project will
finance equipment, training, and technical assistance to strengthen the governance of higher education in
the context of a rapidly expanding system notably by supporting the development of two higher education
governance bodies: the GDHE and the NQAA. At the institutional level, the sub-component will finance:
training and capacity building of university governance bodies, notably the Board of Directors (Conseil
d’Administration) and university management teams. The Government will cover recurrent operational
and wage costs of the sector.
Sub-component 1.2: Project Implementation and Management (IDA US$1.5; Government US$1.0)
46. This subcomponent will support the implementation of the project. It will finance the
equipment, training of staff, the preparation of monitoring reports and technical assistance to the
Direction de l’Administration Generale et de l’Equipement (DAGE), the Direction Générale de la
Construction des Bâtiments et Edifices Publics (DGCBEP), universities, the Ministry of economy and
finance, and the ISEP for the effective management and monitoring of the project. It will support also the
implementation of the environmental action plans. This sub-component will also finance: (i) training of
staff in universities, MOEF, and MOHESR in managing PBC; (ii) technical assistance; and (iii)
equipment to monitor the implementation of the performance-based contracts (PBC).
Sub-component 1.3: Development of a Monitoring and Evaluation system (IDA US$1.6)
47. This sub-component will help build a monitoring and evaluation system both at the sector
level and for individual institutions. The adequate implementation of this sub-component is critical for
the project, notably to have consistent data to monitor indicators and to easily follow the execution of the
performance-based contracts mechanism for each institution. This sub-component will finance the
external evaluations of each annual PBC which will be used for decision-making for financing of each
subsequent year. Under the sub-component, the project will also finance: data collection and analysis,
technical assistance, studies, computers, servers, software and informatics infrastructure and training.
Sub-component 1.4: Sector Knowledge Development Generation (IDA US$2.4)
48. The sub-component will finance specific studies to generate knowledge to inform decision-
making and to improve the performance of the system. The following studies will be financed: (i)
evaluation of the Centres des Oeuvres Universitaires de Dakar, and Saint-Louis (COUD and CROUS) to
review their effectiveness and the service delivery quality; (ii) evaluation of the Senegalese research
system and management; (iii) audit of the efficiency and effectiveness of bursaries allocation and
management system; (iv) feasibility studies for the implementation of the ISEP network and a second
tertiary institution in Dakar including the bidding documents, the legal framework, and the safeguards
requirements ; (v) an evaluation of university financial, procurement and information systems for the mid-
term review; (vi) annual financial audit of universities; (vii) an annual Tertiary education status report as
an update of the 2010 public expenditure and financing review of the higher education sector ; and (viii)
specific surveys and assessments for student satisfaction, LMD implementation and other quality related
issues.
Component 2: Improvement of the effectiveness of the Tertiary education institutions (IDA:
US$60million; Government US$25 million)
Sub component 2.1: Performance based contracts (PBC): (IDA US$33; Government US$10.0)
11
49. This sub-component will create incentives to improve the effectiveness, efficiency and
accountability of HEIs in the utilization of public resources. It would finance performance-based
contracts between Tertiary Institutions and the Government. The PBC will be a contract between the
Government and a Tertiary Education Institution. In this contract, the Government agrees to pay a pre-
determined amount of money representing a portion of the institutional budget. In return, the institution
commits itself to improve its performances in certain fields of its activities. Universities have already
prepared strategic plans from which they will derive priority development plans. The Government will
support these plans with performance agreements that would build on the following arrangements: (i)
each HEI will prepare a detailed action plan and budget covering outputs and outcomes to be achieved in
a five-year period. The agreements would be multi-year and contain: (a) funding commitments for the
first year by costing proposed activities and objectives; (b) funding projections for subsequent years of the
agreement; (c) agreed targets; and (d) indicators to monitor progress. Adjustments will be made yearly
based on the achievement of targets; (ii) the Government would negotiate with each HEI and will provide
financial support to each plan; and (iii) a focus would be on long-term capacity building. World Bank
procedures will be used for procurement. The first two years of PBC will be financed by IDA. After the
PCB is negotiated between the MOHESR and universities, IDA will review the draft contract for No
Objection. The Government‟s recurrent budget will increasingly replace the IDA money starting in the
third year to make this mechanism a sustainable and effective one for allocating additional resources to
HEIs. World Bank will participate in annual reviews that will assess implementation progress of PBCs,
based on the results of an external evaluation and will decide on the amount of the subsequent year‟s
allocation for the PBC. IDA will review each annual PBC for non-objection prior to allocation.
Sub-component 2.2: Diversifying and increasing access to short term tertiary education (IDA US$12.0;
Government US$5.0)
50. This sub-component aims at improving the efficiency and relevance of the tertiary
education system by reducing the overall number of years to get a degree with the increase of short term
tertiary education and the development of alternative ways to access tertiary education. The project
would finance:
(i.) The building of the ISEP in Thies (ISEP) to provide two-year tertiary education programs linked with
the economic needs. The ISEP will be designed to accommodate a total of 7,000 students, 3,500 each
year. The sub-component will finance training, feasibility studies, and the infrastructures and equipment
of the ISEP. It will finance also the necessary technical assistance notably the cost related to the support
of a similar and well performing international tertiary education institution to accompany the
development and the implementation of the ISEP. This Institution will be selected on a competitive basis.
(ii) The establishment of an ICT-facilitated network.. The sub-component will finance: (a) the extension
and improvement of the campus networks in UGB and UCAD and the interconnection; (b) the
implementation of a campus network in Bambey, Thies and Ziguinchor and the interconnection; ( c)
training and capacity building for the staff managing networks and equipment; and (d) technical
assistance and feasibility studies to upgrade the technical center and facilities.
Sub-component 2.3: Improving the learning environment (IDA US$15.0; Government US$10.0)
51. This sub-component aims at improving the quality of the facilities for a better learning
environment. Priority will be given to regional universities that are struggling with an acute lack of
facilities. The sub-component will finance: (i) the rehabilitation and expansion of facilities and purchase
of equipment for the Universities of Thies, Bambey, Ziguinchor and Saint-Louis and the rehabilitation of
facilities and purchase of equipment for UCAD.
12
B. Project Financing
1. Lending Instrument
52. The project uses a Specific Investment Loan (SIL) as lending instrument. While the idea of
an APL was considered as appropriate given the long-term nature of the reform program, the ability of the
Government to commit to a program for 8 years was questioned given Senegal‟s past weak commitment
to prolonged reform and given the upcoming elections. A disbursement-based SIL was also considered
but the FMS and procurement capacity in universities was not considered robust enough at this time. It
was agreed that to secure the long-term commitment, the upcoming CAS would make the Bank's support
to higher education a key priority and that this current project should be a SIL that is seen as the first
phase in a long-term engagement with Senegal in the sector.
2. Project Cost and Financing
53. The project will be implemented as a five-year operation to support the Government program.
The total program is US$127.3 million, of which an IDA credit of US$101.3 million, and US$26 million
as Government contribution. If the feasibility studies financed under component 1.4 are conclusive and all
safeguard and legal requirements are met, the project could possibly be restructured to use the unallocated
amount of US$34 million to finance the creation of a second tertiary education institution in Dakar.
Project Components Project
cost
IDA
Financing
%
Financing
Government
Financing
1 Strengthening the governance of the
tertiary education system
8.1 7.1 100 1.0
2 Improving the effectiveness of the
Tertiary education institutions
85.0 60.0 100 25.0
Total Baseline Costs 93.1 67.1 100 26.0
Unallocated 34.2 34.2 100
Total Project Costs
Total
Financing Required
127.3 101.30 26.0
C. Lessons Learned and Reflected in the Project Design
54. From the previous Higher Education Development Project: the ICR of the Senegal Higher
education project (P002373) highlighted the following lessons.
(a) In a volatile political environment, it may be imprudent to build an entire reform program on the
assumption that the momentum for sector reform at the time of preparation would survive for the next
years of implementation of the reforms. Therefore, when dealing with tertiary education, it is prudent to
phase-in the reforms, to offer options, and not try to address simultaneously the issues of access control,
cost-sharing and internal efficiency. Politically risky operations require a careful analysis not only of the
benefits but also of the threats that they may engender, and of the groups positively and negatively
affected.
(b) It may be advisable to refrain, at the outset, from overselling financial support to the Borrower and
sector reforms to the Bank, as the risk of downscaling may materialize, leading to painful adjustments and
13
generating detrimental impact on both sides. Building an operation on a narrow investment basis and
loading this operation with far-reaching reforms runs the risk of derailment because of the disconnect
between the beneficiaries of the investment and the stakeholders potentially affected by the reforms. A
better balance between the investment and the reform agenda mitigates the risk of further disillusions.
(c) When stakeholders such as students and faculty staff (and their respective unions) are the main
beneficiaries, and in addition, have a powerful bargaining power, it is of paramount importance to involve
them not only in the discussion of the sector measures to be taken, but also in project design and in the
operational aspects of its implementation.
(d) Postponing the detailed definition of key performance indicators, their baseline, mid-term review and
target values until after credit effectiveness often proves to bear the seeds of future failure of the
monitoring and evaluation system.
55. These lessons have been considered into the project design as follows: (i) as detailed in the
ORAF section, the project has been very selective in the number of reforms that will be supported and the
selection criteria is based on a high positive impact, low political and economic costs, and strong buy-in;
(ii) adequate investment will be done to accompany the implementation of the agreed reforms; (iii)
political economy analyses have been carried out, students and teachers have been extensively consulted
in focus groups, meetings and surveys and their concerns integrated into the project design; and (iv)
efforts have been made to define an appropriate monitoring and evaluation system as detailed in section
IV-B and in Annex 1.
56. From international good practice and experience: Evidence from others countries
demonstrated that PBCs is a good mechanism to create incentives to improve the dialogue between the
Government and Institutions. To design the PBC mechanism, experiences derived from World Bank
operations in other countries like Chile, India, Indonesia, Pakistan and also France and Canada have been
taken into account. The team also considered recent literature and guidance in this field, notably by
HDNED publications and notes.11
57. From analytical work: In 2010, the World Bank undertook a Public Expenditure Review of the
Senegal tertiary education sector. The main conclusions of this ESW were: (i) the necessity to improve
the performance of HEIs trough an effective implementation of the LMD reform and the implementation
of a quality assurance system; (ii) change the way HEIs are financed from an input-based mechanism to a
system that links funding to performance; (iii) revise the public expenditure priorities by increasing the
share of public funding that is allocated to the core university missions of teaching, research and service
and lowering the higher share to social expenditure; and (iv) assisting universities to diversify their
resources. Moreover, analyses of the performance of the Senegalese economy, as well as comparative
indicators of global competitiveness, show that the Senegalese economy remains largely factor driven and
has yet to make the transition to an economy based on greater efficiency and higher levels of productivity.
Recent studies12
point to several constraints to faster growth, among which low labor productivity and
low levels of enterprise capitalization.
IV. Implementation
11
Salmi&Alka: Performance Contracts: International Lessons in Tertiary Education;
Salmi&Hauptman: Innovation in Tertiary education financing, World Bank working paper series 12
World Economic Forum, 2010. The Global Competitiveness Report 2010-2011; Republique du Senegal, 2009. Strategie de la
Croissance Accelere; World Bank, 2007. Country Economic Memorandum: Looking for Work .
14
A. Institutional and Implementation Arrangements
58. The Steering Committee: The Minister of Higher Education and Scientific Research will have
the overall responsibility for sector and policy coordination, and he and/or his designee will chair the
Steering Committee consisting of the rectors of universities, representatives from the private sector, the
DGCEBP, the private education providers, and the Ministry of Economy and Finance. The GDHE will be
the secretariat of the Steering Committee that is currently overseeing the preparation of the project.
59. The General Directorate of Higher Education: The GDHE will replace the current Directorate
of Higher Education (DHE) of the MOHESR and will be a semi-autonomous body within the Ministry to
provide technical expertise to the Minister to manage and coordinate the tertiary education system. It will
implement and manage the negotiation of performance-based contracts, supervise the performance
contracts, decide on HEIs budget allocation, responsible for the mapping of new institutions, develop the
information and statistics system. The GDHE will be in charge of the overall technical management and
day-to-day implementation of the project and will coordinate the implementation of the tertiary education
sector reform program. The GDHE will have a semi-autonomous status that will allow it to hire the high
level technical staff needed to oversee the reform of the sector. The GDHE will have five directors
(Academic, Policy, University Financing, Research, and Relations with private sector institutions) and
professional staff. The GDHE will liaise with the DAGE of MOHESR which will be in charge of the
overall procurement, financial management and disbursement for the project and DGCBEP which will
manage procurement of construction and Universities in charge of managing procurement activities under
their PBCs. The administrative text for the creation of this entity has been signed by the President of
Senegal by decree 2011-443 of March 30, 2011. The appointment of the Director General and 5 Directors
is being finalized. The staff of the current Directorate of Higher Education will be incorporated in the
GDHE. Technical assistance, training, equipment and office space will be provided to the GDHE
60. Higher education institutions (HEIs) will be in charge of the implementation of their respective
activities. Senegal tertiary education systems are autonomous and are used to receiving block grants from
the Government for their functioning. They are already well-organized and the project will support the
strengthening of the governance bodies, management structures and systems. Each University has already
set up a PBC management team working under the responsibility of the Rector and comprising of : (i) a
coordinator, (ii) a procurement focal point, (iii) and financial management specialist and a Monitoring and
evaluation specialist which will also act as safeguards compliance focal point. Once the PBC is approved
by the Government and the World Bank, each HEI will be in charge of procurement and financial
management of their PBC. Training will be provided through the project to reinforce procurement
capacities. After the first two years of implementing PBCs, an evaluation of HEIs procurement and
financial management capacities will be carried out in order to assess the possibility of moving to a
disbursement-linked approach. To strengthen the management of the institution, the Government is
reforming the structure of the governance bodies by harmonizing the implementation of Boards of
Directors.
61. The Directorate of General Administration and Equipment (The DAGE): The DAGE of the
MOHESR will be in charge of the overall financial management and disbursement for the project in
coordination with the Directorate of Debt and Investment (DDI) at the Ministry of Economy and Finance.
The DAGE also has the primary responsibility in terms of procurement. It will directly handle all
procurement activities that are not under the responsibilities of the DGCBEP and the HEIs.
62. The DGCBEP under the Ministry of Habitat, Construction and Hydraulic will be in charge of
managing the construction of facilities on behalf of universities including procurement and technical
management of construction. The DGCBEP has a strong experience of managing construction for the
tertiary education system with an average program of $12 billion per year. The project will provide
15
technical assistance in terms of architectural studies and procurement management, as well as the
necessary equipment to handle the construction program.
B. Results Monitoring and Evaluation
Monitoring and evaluation of outcomes/results
63. Framework: A monitoring and evaluation framework has been prepared and discussed with the
Government. The results framework in Annex 1 defines the baseline and the targets to assess the progress
made towards achieving the project development objectives.
64. System: The project will support the implementation of an information system that will support
the M&E system. The GDHE will be in charge of coordinating the monitoring of the implementation of
the entire program. Each HEI has its proper sub-system linked to the general system. This sub-system will
be used to monitor the progress in the performances achieved generally by the institution but also in
implementing its performance-based contract. The project will provide technical assistance and IT
equipment to strengthen the system. A yearly tertiary education statistical yearbook will be produced.
65. During preparation of the project, a detailed assessment was carried out on the universities
capacity to prepare the PBCs, define the indicators and strengthen the process and management systems
to improve the reliability and availability of data to monitor indicators. Each university as part of PCBs
will upgrade its information systems and process, particularly for administrative aspects, strengthen
admission processes and undertake transactional process after the system upgrade.
66. Reports: The GDHE will be responsible for preparing, (i) a yearly general progress report, “the
status of the Senegal tertiary education system”. The report will provide a public expenditure and
financing analysis of the outcomes of the sector, the resources used, the efficiency and effectiveness of
the system. This report will be contracted on a competitive basis; and (ii) a quarterly project
implementation report with the DAGE, DGCBEP, and Universities. Each university will prepare a semi-
annual strategic plan and PBC progress report. These reports will be consolidated yearly into a project
implementation report. These reports will be used in the annual review of the PBCs and along with the
external evaluation of PBC financed under sub-component 1.3 to agree on the performance of PCBs and
the allocation for the PBC for the next year.
67. Safeguards: The DGCBEP has the primary responsibility in monitoring the safeguards
compliance. It will provide specific information to be included in the quarterly progress reports. Rectors
of Universities have responsibility for social safeguards compliance in their specific institutions. The day-
to-day monitoring and management of safeguards compliance will be handled by the M&E specialist in
each university management team. The status of safeguards compliance will be included in the semi-
annual universities progress report. The DGCBEP will designate a safeguards focal point in its staff and
will acquire safeguards external services when needed to ensure compliance with the safeguards
conditions of the Project.
C. Sustainability
Four elements of the project support its sustainability:
68. High Government priority: The Government of Senegal is highly committed to implement the
tertiary education strategy in order to move the sector from a crisis management approach to one with a
medium-term strategy with a more positive and developmental approach. During the last decade,
16
education has been a top priority for the Senegalese Government, especially tertiary education. During
project preparation, all stakeholders including Government officials, rectors, teachers and student unions
have shown a strong commitment to change the way the tertiary education system is being managed in
order to improve its performance.
69. Strong participation of the community: There is a strong demand for better tertiary education
among the population of Senegal, as indicated by enrollment growth in public and privates institutions.
Students, teachers, administrative staff demonstrated a clear willingness to reform the system and to
improve their learning and working conditions.
70. Strong financing commitment: The Government currently allocates 32 percent of its recurrent
budget to education, of which 24 percent to the tertiary education sector. An important development
budget is allocated yearly. Three universities have been opened during the last three years and financed
entirely by the Government budget. A fiscal sustainability analysis has been carried out to review the
soundness of the Government‟s policy options. Annex 6 details the analysis that concludes that the
Government program is sustainable with the implementation of the adopted policy options.
71. Technical viability: The project design has considered only strategies and activities already in the
Government policy and selected policies that were not implemented due to a lack of technical capacities
or resources. The World Bank preparation team provided the technical support to review and improve the
design and implementation modalities.
V. Key Risks and Mitigation Measures
Political economy
72. The political economy of higher education is Senegal is quite complex and there is a great
deal of resistance to change. Senegalese universities have more autonomy than universities in other
francophone countries. This autonomy is guarded jealously and reforms can be seen as threats to
institutional flexibility. The university system in Senegal is derived from the French system. However,
while the French system has undergone significant reforms in 1968, 1984, 1996, 2006 and 2010, the
Senegalese system remains for the most part identical to the French system of the 1950s. Mitigation
measures: Careful attention has been paid to clearly defining the roles and responsibilities of the HEIs and
the Ministry so as to not lose the advantages of autonomy while improving coordination and
accountability. The team worked with the Government to do a social and political assessment and an
action plan addressing these issues will be implemented as part of the project.
73. Lack of ownership by stakeholders. Under the previous project, insufficient stakeholder
involvement in the design and implementation of the program undermined the ability of the Government
to successfully implement its program. Successful implementation will require buy-in and involvement
of the universities, colleges, teachers and students, as well as Government. Mitigation measures: Program
design and its implementation strategy have been done in a collaborative way with stakeholders along
with the Government playing a leading role. A Steering Committee chaired by the Minister of Higher
Education and including all University Rectors and representatives from the Presidency and Prime
Minister‟s Office has been set up to ensure that during the preparation stage decisions on policy changes
and reforms have political endorsement. This Committee will oversee project implementation. A Letter of
Sector Policy has been produced and endorsed by the Cabinet. In preparing the project, all stakeholders
have been consulted. A communications strategy has been developed to build support for the program and
the Government will hire a communications specialist. Teachers and student unions have been consulted
and are supportive of a reform of the higher education system and most of their concerns have been taken
into account in the project design. The program‟s major reform of setting up a GDHE was a proposal of
17
National Consultations on the Higher education System that all national stakeholders and was endorsed
by the Government without any external influence.
Institutional
74. The capacity of the MOHESR to implement policy reforms and new programs is weak . In
the past, projects have been implemented by project units outside the Ministry which undermined
capacity and effectiveness. The mitigation measure was to clarify the institutional capacity of the MHESR
during preparation and an institutional strengthening plan was agreed on as part of the project. The
creation of the GDHE will allow for the provision of technical expertise needed at the system level
(quality assurance, performances based contracts, licensing) that the Ministry would not be able to obtain.
Technical assistance is being provided. The Government is putting in place the key managers for the
GDHE, to ensure that the program implementation is not delayed and universities have established
implementation teams to coordinate and monitor PBCs.
75. Slow pace of implementing reforms. Experience under the previous project showed that the
reasons for not implementing reforms were due to political expediency, bad policy advice from senior
officials, lack of technical capacity to implement reforms and a reform agenda that was too ambitious and
lacking enough incentives. Mitigation measure: the project has been selective in choosing the number of
reforms to implement and involving stakeholders, as mentioned above, in the design of the reform
program. In addition, the PRSC (FY12-15) will be used as a platform and will give the Government time
to prepare further major reforms and provides an incentive to stick to its reform agenda. It will make
efforts to ensure that all senior officials understand the costs of not making changes and the benefits to the
system and the quality of education. High positive impact, low political and economic costs, and strong
buy-in were the criteria to choose the reforms.
76. Capacities to implement the performance-based contracts. Getting a performance-based
contract mechanism up and running is complex, takes time and, successful implementation depends on
strong institutional capacities at the institutional levels. It also depends on clear, transparent and objective
criteria to avoid favoritism and non-transparent decision-making. In addition, to have an effective PBC
mechanism, universities will have to buy-in to the notion of accountability and be fully involved in the
development of the procedures manual for performance-based contracts. Mitigation measure: a manual
of procedures will be developed and will define a peer review mechanism, transparency, fairness and
quality assurance to the process of selection. Adequate technical assistance will be provided.
77. Fiduciary: The overall fiduciary risk is rated as Medium-I. The identified risks are generic to the
country and will be mitigated during project preparation and implementation. In terms of financial
management, the generic risks are the unfamiliarity of universities to prepare and submit reports on fund
utilization, undocumented procedures and the unfamiliarity of the DAGE of the MOHESR to manage
donor-funded projects. Mitigation measures: (i) recruitment of a seasoned Financial Management staff in
the DAGE; (ii) development of an FM manual of procedures; (iii) set up of an accounting software for the
project; and (iv) inclusion of FM arrangements of the HEIs in performance-based contracts. The
procurement risks identified are: the number of implementation agencies, the lack of procurement
procedures manual, and the lack of equipment. Mitigation measures: recruitment of a procurement
specialists; a procurement handbook will be developed for the DAGE and Universities, and capacity
building through equipment and training of all staff involved in procurement and financial management
will be provided.
78. The overall project risk is rated as High for implementation. During preparation, the
Government has been committed to reforms, and has met appraisal and negotiation covenants.
Stakeholders including unions and students are enthusiastic to see the reform program and project support
18
them to move away from the recurrent crisis situation that exists. A Bank field-based task team is
providing the necessary support and technical assistance for a successful implementation. The policy
reforms will also be supported by a future DPO series managed by PREM. However, given the upcoming
elections, the past record of implementing reforms and the ambitiousness of the reforms and uncertainties
on quality of the staffing of the GDHE, it was decided to rate the implementation as High
VI. Appraisal Summary
A. Economic and Financial Analysis
79. Economic analysis: The proposed Project is expected to result in higher private and social
returns than is currently the case. The cost-benefit analysis in Annex 6 presents a picture of the
monetary benefits that can be generated from public spending on the teaching functions of universities.
The reforms supported by the project are expected to both lower the average private cost through higher
on-time completion (thus fewer years of foregone income and direct outlays) and increase the direct costs
for students but the latter – a marginal increase of CFAF 5,000 -- is negligible. Studies in Senegal have
shown that individuals who attend higher education garner a substantial premium in the labor market.
During the period 2003-2007, university graduates had lower unemployment rates and higher wage
differentials than all other categories of workers. Unemployment among individuals with a university
education averaged 8 percent compared with an unemployment rate of 17 and 20 percent for ind ividuals
with a primary or secondary education, respectively. Mean wage rates were also much higher. Wages
increased by about 10 percent for each level of education (primary, secondary, vocational and technical in
rank order) with the exception of tertiary education where the mean wage rate was double that for general
secondary education.13
80. The estimated private and social rates of return to tertiary education in Senegal, as
estimated in annex 6, show that the individual‟s investment in education pays off. The private internal
rate of return to the investment is well above the opportunity cost of capital, 14
and is higher for tertiary
graduates (9.6 percent) relative to secondary school graduates (7.3 percent). In both cases, a decline in
private expenditure and foregone earnings due to on-time progression significantly boosts the private rate
of return. For tertiary graduates, the rate of return reaches nearly 17 percent, double the return to
secondary education. The return to public investment is, however, substantially lower and barely above
the opportunity cost of capital due to the high level of inefficiency within educational institutions and
social subsidies. If university students spent one year less working towards their degree, the social return
increases substantially making public investment in tertiary education significantly more attractive. In
terms of expanding the pool of skilled workers for a growing economy, by 2016 participation rates in
tertiary education are projected to rise from 7.3 to 9.4 percent of the population aged 20-24 and from
about 720 to 930 students per 100,000 people. If the same pace of growth were to continue beyond 2016,
by 2020 Senegal would reach the average coverage rate for emerging economies today.
81. Fiscal impact and sustainability analysis: The analysis shows that the marginal recurrent
costs generated by the project’s investments are sustainable. By investing in new infrastructure, the
project will increase the total maintenance costs of the system. The governance reforms will also generate
additional management costs relative to what the Government of Senegal has been spending on a small
Ministry. Both of these costs have been factored into the projections of recurrent costs. Their marginal
impact is negligible. Over time, it is entirely feasible for the Government of Senegal and the universities
to assume the additional recurrent costs generated by the project. To assess the recurrent costs and
13
World Bank (2009). Looking for Work; Salimata Faye (2010). PER analysis; World Bank (2010). Tertiary
Public Expenditure Review. 14
The current discount rate is 4.75 percent and the deposit interest rate is 3.5 percent.
19
savings of these policies and targets, a financial simulation model was developed. Four main scenarios
were considered.
The base case scenario (Scenario A) shows that student numbers will far exceed the planned
capacity of 80,000 and deficits in university recurrent expenditure would average US$23 million
a year over the next five years, and reach US$36.7 million in 2016. Furthermore, since this level
of capacity is not being planned, severe overcrowding would be inevitable.
Scenario B and C notices improvement in internal efficiency through lower repetition, lower drop
out and the creation of the ISEPs offering shorter-term programs. While total enrolment in
public universities would fall significantly, the deficit in recurrent resources would still be high,
averaging about US$18 million a year and rising to US$26 million in 2016.
Scenario D introduces, the only measure that can accommodate the planned size of the university
system and improve its financial sustainability given the projected level of resource availability
from Government and university own resources which is limiting intake to planned capacity of
80,000 which is an estimated 23,000 new students per year. By matching student numbers to
planned capacity, the public university system becomes financially sustainable over time. By
2015, the Government will be able to cover the additional costs generated by the project and
invest more in improving the quality of public education.
82. Development expenditures are estimated at about US$166 million over the five -year period
2012-2016. The IDA credit of US$101.3 million will finance the costs of institutional development
(US$7.1 million), and the performance-based contracts (US$33.0 million) leaving US$61.9 million for
other development costs which are primarily infrastructure-related. The Government‟ s contribution to
the financing of the program in terms of development capital expenditure is US$64.7 million of which
US$16 million is counterpart to the IDA financed project. The remaining US$48.3 million will be used to
finance additional infrastructure and equipment for HEI or possibly as co-financing of donor projects such
as for the new university in Dakar. There is no financing gap.
B. Technical
83. The project design is appropriate to the needs of the country and is based on the findings of
the World Bank’s 2011 Public Expenditure Review, the 2007 Country Economic Memorandum
“Senegal - Looking for Work”. The PER provides the background for the governance and budget
management reforms that underpin the performance contracts. The legal texts for the governance
institutions, including the GDHE, the NQAA, and new boards of directors for universities, LMD as well
as new laws governing the financial management regime for universities have been already prepared.
84. The financial and budget reforms that will underpin the PBC were reviewed by an Ad-hoc
financing committee chaired by the Ministry of economy and finance and revisions to the legal texts
governing university financing have been agreed upon. In addition, the financial management systems in
HEIs will be extensively strengthened with a formal management committee structure and the upgrading
of the DAF of each HEI to a modern Chief Financial Officer who will be better able to manage reforms at
the institutional level in an integrated fashion.
85. An extensive participatory and consultative process was undertaken with stakeholders to
ensure both the technical viability and a consensus on these new organizations. For example in
preparing the new financial regulations, an Ad-Hoc Committee was established and chaired by the
Ministry of economy and finance with membership from the Ministry of Economy and Finance,
universities and MOHESR. Performance-based contracts were developed using examples from Chile,
Indonesia, France and Canada where there have been positive experiences. Templates for the
performance-based contracts and the processes to be used were discussed during the pre-appraisal stage.
20
University strategic plans which will be the basis for the performance contracts have been prepared in
four of the five universities. These documents have been developed in a systematic and participatory
fashion.
86. There is a great deal of buy-in and enthusiasm in each university community for their
strategic business plans and institutional objectives. In terms of performance indicators, universities
have developed key indicators coherent with government policies such as for repetition rates, budget
management, students enrolled in short term programs, implementation of LMD in their strategic plans.
This will ensure that strategies at the institutional level are coherent with those at the national level. Key
indicators for each institution have been calibrated to its specific priorities and aligned with national
objectives and are the basis for the performance contracts. Also, new laws and regulations will assist in
meeting these goals such as allowing students to have conditional registration based on exam results in
order to facilitate a more orderly school year. Currently students cannot register until they finish their
exams in the final year of high school. This means that often students are not enrolled until January or
February and thus do not do well in their first year exams.
87. The design and concept of the ISEP will be linked to labor market needs and the subject of
a feasibility study. The ISEP will work with enterprises to develop programs and internships for
students and will have a major role on the Board of Directors. Legal texts clarifying the mission,
autonomous status and governance arrangements will also ensure that most teachers come from a
professional background and that students will enter the labor force after leaving the ISEP. Program
priorities were selected from studies carried out by the AGS, which identified the high growth sectors and
the specific mid-level skills needed. The ISEP will be located in Thies, which is the second city in terms
of economic activity with a diversified economic base. With its proximity to the new airport, horticulture
businesses, tourist destinations, construction, export zones and the port, the probability of students to have
internships and jobs should be quite high.
88. From an implementation perspective, the establishment of the GDHE with a financial
autonomous status will allow it to hire the staff and experts needed to guide and monitor
implementation. The mandate, job descriptions and draft work programs were developed during
preparation and the Government has nominated the Director General and Directors. The GDHE will have
the staff and mandate to carry out its functions adequately. The annual assessment and negotiations of
PBCs for the next year will provide both incentives for good performance and sanctions for weak
performance.
C. Financial Management
89. A financial management assessment of Ministry of Higher Education and Scientific
Research (MoHESR), the main implementing agency for the project was conducted. A review of the
FM capacity of the main universities (Dakar, Saint Louis, Bambey and Ziguinchor) was also conducted to
determine whether they meet the Bank‟s minimum requirements to manage the component 2. The
conclusion of the assessment is that the financial management arrangements have to be set up and will
meet the Bank‟s minimum requirements under OP/BP 10.02 once the mitigation measures are
implemented. The residual risk rating for DAGE of the MoHESR is Medium-I.
90. As a result of the financial management capacity constraints, the effectiveness conditions
for this project are to (i) adoption of the Administrative and Financial Manual and the Project
Operational Manual, both in form and substance satisfactory to the Association; (ii) recruitment in the
DAGE of a financial and administrative officer and a procurement specialist; (iii) the set up of the
financial and accounting management software for the Project, including at the Universities‟ level, in a
manner satisfactory to the Association. Before the transfer of the initial advance, the MoHESR should
21
appoint an accountant within each university under terms of reference acceptable to the Bank to facilitate
the management of agreed performance based contracts.
91. The DAGE of the MoHRSR will have the fiduciary responsibility of the overall project
implementation and the recruitment of the financial and Administrative Officer within the DAGE
is being finalized. The activities of the component 2 will be financed through performance-based
contracts and each university will be responsible for the FM tasks related to the implementation of the
performance based contracts and the Designed Account. The agreements with universities will be based
on detail actions plans and budgets covering outputs and outcomes to be archived in a five-year period.
Universities are autonomous public entities which are functioning with operational subsidies from the
national budget, grants from donors and resources resulted from the continuing education, A Public
Accountant installed in each university under the oversight of the Treasury is in charge of all university‟s
payments and the bookkeeping of budgeted operations. Dakar University is familiar with donor
procedures (European Union, CRDI, university francophone agency,) and has a cooperation unit which
monitors all donors financed projects.
D. Procurement
92. Procurement: Procurement for the Project will be carried out in accordance with World Bank‟s
“Guidelines: Procurement under IBRD Loans and IDA Credits” dated May 2004 revised October 1, 2006
and May 2010 and January 2011; and “Guidelines: Selection and Employment of Consultants by World
Bank and Borrowers” dated May 2004 revised October 1, 2006, May 2010, and January 2011, and the
provisions stipulated in the financing Agreement.
93. A brief summary of the procurement capacity assessment is provided in Annex 3. The
Project will build on the previous Bank-supported education project in Senegal (PAES and PEQT2),
given the fact that many tertiary education staff involved in these projects are now among the staff of
universities covered by the Project. Implementing Agencies (IAs): The DAGE of the Ministry in charge
of Higher Education, The DGCBEP of the Ministry in charge of Urbanism, Building and Hydraulic and
the 5 universities (in Dakar, Saint-Louis, Thiès, Bambey et Ziguinchor) have each a CM (Commission des
marchés), which is in charge of bids/proposals opening and contracts award; and a CPM (Cellule de
passation des marchés) in charge of quality control and procurement plans. Nevertheless, the assessment
carried out during Project preparation showed that the main issues/risks concerning the procurement
activities for Project implementation are: (i) the number of executing agencies (7): 2 Directorates and 5
Universities, the main one being The DAGE, which is responsible for the fiduciary function; (ii) there is
no administrative and financial procedures manual; (iii) most of the executing agencies need more
equipment and/or space to file the documents for the proposed Project; and (v) universities will use an
innovation (performance-based contracts) which will be taken in account in the procedure manual. the
recruitment of a senior procurement specialist very familiar with World Bank procedures for a full-time
position to provide support and capacity building to IAs is being finalized.
94. To address these risks, the proposed Project will finance the following activities: (i)
recruiting a consultant for the elaboration of an administrative, procurement, accounting, financial
procedures manual, and PCB implementation; (ii) finding more space and/or purchase additional
equipment to file archives of the executing agencies archives; and (iii) training the staff and technical
experts involved in the Project implementation, in the World Bank basic procurement procedures. The
financing of these activities will start with the PPA. This approach will be to provide basic procurement
training to technical specialists and experts who will handle procurement activities. The technical
responsibilities in preparing procurement packages – including technical specifications and terms of
reference – and amending basic procurement document templates, such as data sheets, will be carried out
by the relevant specialists/experts and will not be passed out to the procurement team. A procurement
22
plan has been prepared by the project team and be finalized before negotiations. The overall project risk
for procurement is Medium-I and is expected to be Low once the mitigation measures are implemented.
E. Social
95. The Project has a national scope in terms of its institutional, and policy aspects . However,
with respect to the physical investments, the existing Universities of Thiès, Bambey, Saint -Louis, and
Ziguinchor are the primary targets, along with the creation of the ISEP. It is expected that the potential
adverse social impacts will be small-scale and site-specific typical of Category B projects. Moreover, the
project is expected to generate significant social benefits through increased security within campuses,
better access to water and sanitation services for students and workers, better working and hygiene
conditions and contribute positively to livelihood conditions with employment opportunities.
96. OP 4.12 on Involuntary Resettlement is triggered. In some of the sites, specifically at the new
ISEP and Bambey University, project activities could impact, either temporarily or permanently, the
livelihoods of farmers who cultivate or raise poultry within the potential areas identified for sitting the
new infrastructure. A Resettlement Policy Framework (RPF) has been prepared. Since the potential
impacts on livelihoods are expected to be limited (i.e. small number of farmers and lands affected),
Resettlement Action Plans (RAPs) will be prepared as needed once the specific location of the proposed
infrastructure is known.
97. The Physical Cultural Resources OP 4.11 is triggered because of the construction of
infrastructure within the universities setting. In case cultural resources are affected, the policy mitigation
measures to prevent adverse impact and protect the sites as sources of valuable scientific and historical
information, as assets for economic and social development, and as integral part of the local cultural
identity will be implemented in Environmental Management Plans, based on the OP 4.11 standards.
98. As part of the preparation for this project as well as the Environmental and Social
Management Framework (ESMF) and Environment management plans (EMPs), stakeholder
consultations in the target areas were organized. Relevant issues raised included sensitization and
awareness in maintenance of infrastructure and capacity building for key stakeholders like students
associations. During implementation of proposed investments, consultations will continue on a permanent
basis to take place with all stakeholders regarding the education sector project potential environmental
and social impacts issues.
F. Environment
99. The Environmental Category assigned to the project is Category B-Partial Assessment,
predicated on the fact that environmental risks and social impacts are expected to be limited and
manageable and, in most cases, reversible. The Project‟s support to the construction of the Tertiary
Education and Vocational Institute in Thies (ISEP); the rehabilitation, expansion, and equipment of Thies,
Bambey, Ziguinchor, and Saint-Louis universities; and the rehabilitation and equipment of facilities in
Dakar University trigger the World Bank safeguard policy on Environmental Assessment (OP/BP 4.01).
The potential environmental impacts associated with the project may include loss of vegetation cover,
nuisance and waste generation during construction works, etc.; however, the expected environmental
impacts can be managed through mitigation measures and actions as proposed in the Environmental and
Social Management Framework (ESMF) for the project and specific Environmental Management Plans
(EMPs) that will be included as part of the bidding documents for contractors. The ESMF was prepared,
consulted upon, and disclosed in country and at the Infoshop prior to appraisal, as well as EMPs for the
23
universities of Bambey, Thies and Ziguinchor. EMPs for UGB-St.Louis, ISEP (and Dakar, if necessary)
will be prepared once the specific feasibility and architectural studies are completed. In addition, if a
decision is made during project implementation to finance the construction (instead of the rental) of a new
building for the General Directorate of Higher Education (GDHE), the ESMF and RPF will guide the
preparation of an Environmental and Social Impact Assessment and/or EMP.
100. The focal point for social and environmental safeguards is within the Directorate of
Construction (DGCBEP) at the Ministry of Habitat and Construction, which coordinates the
management of contracts of the project and is in charge of the implementation of environmental and
social mitigation and corrective measures, including the validation of the screening process for all
construction activities, and genuine consultation of beneficiaries: tertiary and secondary education
students, the academic and administrative staff of universities and tertiary education institutions, and
managers in public and private tertiary education institutions. The office of monitoring and impact
evaluation of the Directorate of Environment (DREEC) will take the lead for external monitoring and
oversight of safeguard aspects.
101. Significant institutional and technical capacity for environmental management needs to be
provided at all levels. The national legal framework for environmental management in Senegal spells out
the roles and responsibilities of different Government ministries, departments and agencies as well as
other stakeholders. Substantial progress in planning and implementation of safeguard measures has also
been made over the years in a number of Bank-funded operations, including the previous education sector
operations. Notwithstanding this progress, significant institutional and technical capacity for
environmental management still needs to be provided at all levels. Capacity building requirements are
addressed in detail in the ESMF and budgets provided for under the project to implement the
recommended capacity improvement measures both for environment and social aspects.
Safeguard Policies Applicable to the project
Safeguard Policies Triggered Yes No
Environmental Assessment (OP/BP 4.01) X
Natural Habitats (OP/BP 4.04) X
Forests (OP/BP 4.36) X
Pest Management (OP 4.09) X
Physical Cultural Resources (OP/BP 4.11) X
Indigenous Peoples (OP/BP 4.10) X
Involuntary Resettlement (OP/BP 4.12) X
Projects in Disputed Areas (OP 7.60) X
Projects on International Waterways (BP 7.50) X
Safety of Dams (OP 4.37 X
24
Annex 1: Results Framework and Monitoring
PDO: Enhanced efficiency and quality of the higher education
system and the oversight and accountability of targeted HEIs
Efficiency- Promotion rate for the first year by
university (%)
Quality- Academic programs that meet minimum
quality standards as set by NQAA (%)
Oversight- Universities with performance-based
contracts negotiated and overseen by GHDE (%)
Accountability
- Institutionsthat achieve at least 80 percent of the annual targets set in the performance based contracts (%)
Beneficiaries- Direct Project Beneficiaries (number), of which female (%) CORE
Improved Learning
Outcomes
Components/ActivitiesIntermediate Outcomes/ Indicators Outcomes/
Indicators
Impact
Senegal Tertiary Education Governance and Financing - Project Results Chain
1.1 a) Establish GDHE
- Premises established/rented (yes/no)- Office furnished and equipped (yes/no)
- Staff trained (number)- IT system in place (yes/no)
Improved Government management and monitoring of tertiary education system
- GDHE is created to provide oversight and coordinate the implementaiton of reforms in the
tertiary education system (yes/no) - Annual tertiary education statistics report produced (yes/no)- Budget allocated based on performance contracts
(%)- All tertiary institutions use the new financial law to manage their budget (yes/no)- Tertiary institutions with a Board of Directors
(Conseil d'Administration) that approve the annual budget (%)
1.1 b) Establish NQAA
- Office furnished and equipped (yes/no)- Staff trained (number)
1.2 Develop performance based incentive mechanisms
- Staff trained on performance based contracts (number)- Equipment to monitor performance based contracts in
place (yes/no)
1.3 Develop monitoring and evaluation mechanisms
- Staff trained (number)- Monitoring equipment, software, computers in place
(yes/no)- External evaluation s of performance based contracts
1.4 Strengthen sector knowledge
- Studies undertaken (number)
1.1 c) Establish HEI Boards of Directors
- Legal framework updated to reform university governance (yes/no)
2.1 Implement Performance Based Contracts
- Detailed Action Plans/proposals prepared (number)- Proposals assessed by MOHESR (number)
- Performance Based Contracts signed and implemented (number)
Improved learning environment, performance and quality management of targeted HEIs
- Repeating students in year 1 by area of study and university (%)
- Undergraduate programs elaborated according to LMD with complete description (number)- Teachers having followed training in the LMD requirements for teaching (%)
2.3 Construct, rehabilitate and equip targeted HEI facilities
- Classrooms and other facilties constructed, rehabitlitated and/or equipped (number)
2.2 Establish ISEP in Thies
- Classrooms and other facilties built and equipped(number)
Improved access to short term tertiary education
- ISEP is functional (yes/no)- Students enrolled in programs designed with
private sector in ISEP (number)
25
Table1: Results framework
PDO Project Outcome Indicators Use of Project Outcome
Information
The project development
objective is to enhance the
efficiency and quality of the
higher education system and the
oversight and accountability of
HEIs.
1. Academic programs that meet
minimum quality standards as set
by the National Quality
Assurance Authority (%)
2. Promotion rate for the first
year by university (%)
3. Universities with performance-
based contracts negotiated and
overseen by GDDE (%)
4. Institutions that achieve at
least 80 percent of the annual
targets set in the performance-
based contracts (%)
5. Direct Project Beneficiaries
(number), of which female (%)
- Students in the new ISEP
School.
- Students enrolled in the
HEIs
Information will be used to
oversee the improvement in the
quality of service delivery.
Determine whether the internal
efficiency of HEIs is being
improved.
Determine improvement in the
quality of programs
To monitor the accountability in
the service delivery
Relevant core IDA indicator
Intermediate Outcomes Intermediate Outcome
Indicators
Use of Intermediate Outcome
Monitoring
Component 1: Strengthening
the governance of the tertiary
education system.
1. Annual tertiary education
statistics report produced
(yes/no)
2. All tertiary education
institutions use the new financial
law to manage their budget
(yes/no)
3. Budget allocated based on
performance contracts (%)
4. A GDHE is implemented to
(i) coordinate the
implementation of the tertiary
education program, (ii) provide
oversight for PBC
implementation, and (iii) monitor
Monitoring the performance of
the HEIs and preparing the
tertiary education annual report.
Monitoring the improvement in
the accountability of HEIs.
Assess the effectiveness of the
financing of tertiary education
sector financing.
Improvement of the financial
management of the tertiary
education institutions.
Improvement in governance of
the HEIs
26
the status of reforms. (yes/no)
5. Tertiary institutions with a
Board of Director (Conseil
d’Administration) that approve
the annual budget (%)
Component 2: Improvement of
the effectiveness of the Tertiary
education institutions .
6. Repeating students in year 1
by university (%)
7. Undergraduate programs
elaborated according to LMD
with complete description
(number)
8. Teachers having followed
training in the LMD
requirements for teaching (%)
9. Students enrolled in programs
designed with private sector in
the ISEP (number)
10. ISEP is functional (yes/no)
Monitoring the improvement of
the internal efficiency of tertiary
education institutions.
Determine improvement in the
service delivery
Determine improvement in the
relevance of programs and the
accountability of teaching staff
Determine the relevance of
programs.
27
Table 2: Monitoring indicators
Project Development Objective (PDO): The project development objective is to enhance the efficiency and the quality of the higher education system and the
oversight and accountability of HEI institutions (HEI).
PDO Level Results Indicators*
Co
re
Unit of Measure
Baseline 2010
Cumulative Target Values**
Frequency Data Source/ Methodology
Responsibilit
y for Data
Collection
Description
(indicator definition
etc.) 2012 2013 2014 2015 2016
1. Academic programs that meet minimum quality standard as set by the National Quality Assurance Authority.
% 0
0
25
50
75
90
Yearly
Universities annual reports/ Tertiary education annual report
Universities
2. Promotion rate at grade one by university UCAD UGB Bambey Thies Saint-Louis
%
30 70
80
70 57
35 72
82
72 59
45 78
84
74 64
50 83
86
76 69
55 88
88
78 75
60 90
90
80 80
Yearly
Tertiary education annual report
GDHE
3 Universities with performance-based contracts negotiated and overseen by GHDE (%)
% 0 40 60 80 80 80 yearly Tertiary education annual report
4. Institutions that achieve at least 80% of the annual targets set in the performance-based contracts.
% 0 0 40 60 80 80 Yearly
Tertiary education annual report
GDHE
5. Direct Project Beneficiaries (number), of which female (%)
X
Number Yearly Tertiary education annual report
GDHE
- Students in the new ISEP School, of which female
0
0
0
2500
45
5000
48
6000
50
Yearly Yearly
Tertiary education annual report
GDHE
28
- Students enrolled in HEIs, of which female (%)
68322
33
70000
33
72000
36
75000
39
76000
41
80000
43
Yearly Tertiary education annual report
GDHE
INTERMEDIATE RESULTS
Intermediate Result (Component One): Strengthening the governance of the tertiary education system
1. Annual tertiary education statistics report produced
Yes/No No No Yes Yes Yes yes Yearly Tertiary education information system
GDHE
2. All tertiary education institutions use the new financial law to manage their budget
Yes/No No Yes Yes Yes Yes Yes Yearly Assessment MOEF/DB/DCEF
3. Budget allocated based on performance-based contracts
% 0 0 0 5 10 15 Yearly
Tertiary education annual report
GDHE
4. A GDHE is implemented to (i)coordinate the implementation of the tertiary education program, (ii) provide oversight for PBC implementation, and (iii) monitor the status of reforms.
Yes/No No Yes Yes Yes Yes Yes Yearly
Assessment Ministry of Tertiary education
5. Tertiary institutions with a Board of Director (Conseil d‟ Administration) that approve the annual budget.
% 0 0 0 20 40 80 Yearly
Assessment GDHE
Intermediate Result (Component Two): Improvement of the effectiveness of the Tertiary education institutions
6. Repeating students in year 1 UCAD Other Institutions
% %
40
16
40
14
30
13
25
12
22
11
20
10
Yearly
Tertiary education annual report
GDHE/HEIs
29
7. Undergraduate programs elaborated according to LMD with complete description
Number
0
25
35
70
90
100
Yearly
Tertiary education annual report
GDHE
8. Teachers having followed training in the LMD requirements for teaching
% 0 0 20 30 40 50 Yearly
Tertiary education annual report
GDHE/HEIs
9. Students enrolled in programs designed with private sector in the ISEP (number)
Number 0 0 0 500 2000 3000 Yearly Tertiary education annual report
GDHE/HEIs
10. The ISEP is functional
Yes/No No No No No Yes Yes Yearly
Project Implementation progress report
GDHE
ISEP is functional when it starts training the first cohort of students
30
Arrangements for Results Monitoring
Institutional arrangement:
1. The GDHE will be in charge of coordinating the M&E system. It will collect and consolidate all
the information related to the project progress and implementation and achievement of outcomes with a
regular monitoring of the indicators. The DAGE will be in charge of organizing the fiduciary information
to be transferred to the GDHE for consideration in the progress report. The General Directorate for
construction will provide the information related to progress in the implementation of the const ruction
program. The NQAA will provide the information related to progress in the implementation of the quality
assurance agenda.
2. Universities will collect the necessary data to follow up the progress in the achievement of the
objectives in the Institution. The University implementation team is in charge of collecting and analyzing
the information for quarterly, semi-annual and annual reports to be submitted to the GDHE.
Reports:
3. Project Implementation progress report: The GDHE will prepare quarterly and annual progress
reports based on the information available at national level and the reports and data provided by
universities. The quarterly progress reports will focus on the project implementation and performance and
the annual reports will provide a global review of the performance of the tertiary education system.
4. Financial report: As detailed in Annex 3, the DAGE will produce a consolidated quarterly
unaudited Interim Financial Reports (IFR). This consolidated IFR will include specific IFRs prepared by
each university for designated accounts and the related project account.. The IFRs are to be produced on a
quarterly basis and submitted to the Bank within 45 days after the end of the calendar quarterly period.
The format of the IFRs will be prepared and agreed during negotiations. The DAGE will also produce the
project‟s Annual Financial Statements and these statements will comply with SYSCOHADA and World
Bank requirements. Each university will produce Annual Financial Statements.
5. The status of the Tertiary education system: The report will be prepared based on an update of
the 2010 PER used to prepare the proposed Project. It will focus on reviewing improvements of the
performances of the sector, allocation of resources, the effectiveness and efficiency of resource
utilization. This report will be used as the basis of discussion during annual reviews of the sector.
6. Annual External Evaluation of PBCs. An external evaluator of PCBs will be recruited to assess
the quality and progress of PCBs in meeting indicators. This external evaluation will be used in
determining the PCB allocation for each subsequent year after the PBC contract has been signed.
7. Bi-annual University PBC reports. Each university will prepare a bi-annual progress report of its
PBC that will develop the progress in the implementation of the agreed contracts and achievements
towards the results. These reports will be discussed during supervision mission and annual review.
8. Other studies Other studies to improve the performance of the system will be carried in order to
develop the second phase of the government‟s program. These studies include: (i) evaluation of the
Centres des Oeuvres Universities de Dakar, and Saint-Louis (COUD and CROUS) to review their
effectiveness and the service delivery quality; (ii) evaluation of the Senegalese research system and
management; and (iii) evaluation of the efficiency and effectiveness of scholarships allocation and
31
management:; (iv) feasibility studies for the implementation of the ISEP network and a second tertiary
institution in Dakar including the biding documents and the legal framework; and (v) an evaluation of
university financial, procurement and information systems for the mid-term review.
Sources of data:
9. An Integrated tertiary education information system (ITEIS) is being developed based on the
existing local systems in universities that need to be modernized. The ITEIS will be used to prepare a
yearly statistical yearbook at the national level and in all universities. Technical assistance will be
provided for an effective development of the ITEIS.
10. Specific surveys and qualitative assessments will be carried out to review the quality in the
implementation of the LMD reform and the satisfaction of students.
11. Quality of data. During preparation of the project, a detailed assessment was carried out on the
universities capacity to prepare the PBCs, construct a dictionary of indicators and strengthen the process
and management systems to improve the reliability and availability of data to monitor indicators. The
assessment recommended to put in place : (i) an action plan (plans directeurs) to upgrade its information
systems and process, staffing and training programs for administrative staff; (ii) a detailed plan to
improve admissions processes; and (iii) to undertake an audit of transactional processes for the new
information and admissions processes
32
Annex 2: Detailed Project Description
1. The project development objective is to enhance the efficiency and quality of the higher
education system and the oversight and accountability of HEIs. The project will support investment and
policy reforms that will: (i) strengthen the Government‟s capacity to improve the management of the
tertiary education system; (ii) introduce new financing mechanisms to create incentives to improve: (a)
the financial management and accountability in the quality of service delivery by HEIs; (b) the efficiency
of the institutions by reducing the average duration to obtain a tertiary education graduation; (iii) the
development of a short term vocational education linked with the labor market and the growth sectors;
and (iv) the improvement of the learning environment.
Component 1: Strengthening the governance of the tertiary education system.
2. Sub-component 1.1 Operationalizing governance bodies: This sub-component would support
sub-sector-wide initiatives that are directed towards improving the overall governance and management
of the higher education environment. The project will finance activities to strengthen the governance of
higher education in the context of a rapidly expanding system, notably by supporting the implementation
of three higher education governance bodies - the GDHE and the NQAA and the HEI Boards of
Directors.
(a) The GDHE
3. The governance of the Tertiary Education System (TES) is notably weak in Senegal. A
“Direction de l’Enseignement supérieur” (DES) was created 15 years ago, but has never been adequately
staffed and equipped so that its policy development, evaluation and monitoring capacity is very low at a
time where the system is evolving at a rapid rate. In creating the “General Directorate of Higher
Education GDHE”, the Government wants to give itself the capacity to orient and control the
development of the higher education sector. The GDHE will replace the DES. It will have five directions:
(i) Financement des établissements d’enseignement supérieur for financial affairs including management
of Performance Based Contracts; (2) Études et Politiques for planning and development of the national
information system; (3) Affaires académiques et juridiques for regulatory matters and follow-up of the
National Quality Assurance Agency recommendations; (4) Recherche for the promotion of research
activities; and (5) Relations with private sector institutions. The GDHE will be financially autonomous,
which means it will have the flexibility needed to recruit highly qualified and technical staff.
4. The Bank will support the implementation of the GDHE. This will include financing the
construction or rental of appropriate premises, those currently occupied by theDHE being inadequate, and
financing the purchase of the necessary infrastructure, in particular as regards to furniture, computing and
communications. The Bank will also finance technical assistance, mainly in the design of an appropriate
information system, and training for the staff of the GDHE. Training will be particularly needed in the
management of performance-based contracts. It will take the form of workshops and observation sessions
in countries with relevant experience. It is expected that at the end of the first year, the GDHE will be
fully operational.
(b) The NQAA
33
5. There is no formal quality assurance or monitoring of academic programs or quality audit of
institutions in Senegal. Private universities may obtain the recognition of their programs by the Conseil
Africain et Malgache pour l’Enseignement Supérieur (CAMES), but this is done on a voluntary basis.
With the multiplication of universities and the implementation of the LMD system, the Government has
taken the decision to set up a Autorité Nationale d’Assurance Qualité (NQAA). The Ministry believes
that this is a priority to ensure the equivalency and mutual recognition of diplomas and to remove barriers
to the mobility of students in Senegal as well as in other countries. The NQAA will be an autonomous
and independent institution. Seven persons will constitute its Board and a secretariat of three to five
persons will be in charge of its operations: development of evaluation tools, recruitment and training of
experts for performing evaluations, training of the Institutions Quality Assurance Unit (QAU),
publication of reports, etc.
6. The Bank will support the creation of NQAA. It will finance the equipment needed for its
operation, namely furniture, computing and communication. It is expected that NQAA will be housed in
the building of the GDHE. The Bank will also finance training of staff and experts as well as study tours
and immersion sessions in experienced and internationally recognized quality assurance agencies. Since
the implementation of quality assurance procedures in an institution cannot be done without the existence
of institutional QAU in universities, the Bank will support the development of a QAU in each institution
by financing the training of its staff and purchase of office equipment.
( c ) HEI Boards Of Directors
7. Each HEI will reform its governance structure and will establish Boards of Directors which
replace the University Councils. These Boards of Directors are limited in size to about 20 and include
significant place for civil society and the business community. There mandate is to ensure the pedagogic
and management stewardship of the HEI and will among other things approve the annual budget, PCB
and audit. The newer universities are already putting Boards of Directors in place. However for UGAD
and UGB, the existing University Councils were created under the Higher Education Law 67, article 4 for
Dakar and the 90 Law for UGB and will require that a revision of the laws to reform university
governance. The Government has prepared a draft law and is in the process of building a consensus
around these changes.
8. Sub-component 1-2: Project implementation and management: This subcomponent aims at
supporting project implementation. It will finance equipment, 14 vehicles for DGES (6), NQAA (2),
DAGE (3), DGCBEP (2) and MEF/DCEF (1), computers and office furniture, training of staff in specific
areas related to the implementation of project activities, consultants and workshops for monitoring reports
preparation and technical assistance to the DAGE, DGCEP, Ministry of economy and finance, and
universities for the effective management and monitoring of the project. This sub-component will also
finance: (i) training of staff in universities, MOEF, and MOHESR in managing PBC; (ii) technical
assistance; and (iii) equipment to monitor the implementation of the PBC.
9. Sub-component 1-3: Development of a Monitoring and Evaluation system : This
subcomponent will help build a monitoring and evaluation system both at the system level and in
institutions. The activities of this subcomponent are critical for the success of the project, notably the
execution of a performance-based contract mechanism. This sub-component will finance the external
evaluations of each annual PBC which will be used for decision-making for financing of each subsequent
PBC. Under the sub-component, the project will also finance: data collection and analysis, technical
assistance, studies, computers, servers, software and informatics infrastructure and training.
10. Sub-component 1.4: Sector Knowledge Development Generation : The project will finance
specific studies to generate more knowledge to inform decision-making and to improve the performance
34
of the system. The following studies will be financed: (i) An evaluation of the Centres des Oeuvres
Universities de Dakar, and Saint-Louis (COUD and CROUS) to review their effectiveness and the quality
of their service delivery; (ii) an evaluation of the Senegalese research system and management; (iii) the
audit of the efficiency and effectiveness of scholarships allocation and management; (iv) the feasibility
studies for the implementation of the ISEP network and a second university in Dakar, including the
bidding documents and the legal framework; (v) feasibility studies for the implementation of the ISEP
network and a second tertiary institution in Dakar including the biding documents, the legal framework,
and safeguard requirements (vi) an evaluation of university financial, procurement and information
systems for the mid-term review; (viii) annual financial audit of universities (vii) an annual Tertiary
education status report as an update of the 2010 public expenditure and financing review of the higher
education sector; and (ix) specific surveys and assessments for student satisfaction, LMD implementation
and other quality related issues.
Component 2: Improvement of the effectiveness of the Tertiary education institutions
Subcomponent 2-1: Performance-based contracts to improve accountability and efficiency in
resource management
11. Subcomponent 2-1 will create incentives to improve the effectiveness and efficiency of HEIs in
the utilization of public resources. It will finance performance-based contracts between tertiary
institutions and the Government. Universities have already prepared strategic plans from which they will
derive priority development plans. The Government will support these plans with performance-based
contracts that would build on the following arrangements: (i) each HEI will prepare a detailed action plan
and budget covering outputs and outcomes to be achieved in a five-year period. The agreements would be
multi-year and contain: (a) funding commitments for the first year by budgeting proposed activities and
objectives; (b) funding projections for subsequent years of the agreement; (c) agreed targets; and (d)
indicators to monitor progress. Adjustments will be made yearly based on the achievement of targets; (ii)
the Government would negotiate with each HEI and will provide financial support to each plan; and (iii) a
focus would be on long-term capacity building. World Bank procedures will be used for procurement and
financial management. After the PCB is negotiated between the MOHESR and universities, IDA will
review the draft contract for No Objection. As in the table below, the Government‟s recurrent budget will
increasingly replace the IDA money starting in the third year to make this mechanism a sustainable and
effective one for allocating additional resources to HEIs. Annual reviews will assess implementation
progress of PBCs, based on the results of an external evaluation and will decide on the amount of the
subsequent year‟s allocation for the PBC. IDA will review each annual PBC for non-objection prior to
allocation.
Financing of PBC (US$ million)
Source 2012 2013 2014 2015 2016 Total
IDA 8 8 7 5 5 33
Gvment budget 0 0 1 3 6 10
Total 8 8 8 8 11 43
Main Features of Performance-Based Contracts (PBC)
12. The PBC will be a contract between the Government and identified Senegalese universities. In
this contract, the Government agrees to pay a pre-determined amount of money. In return, the institution
commits itself to improve its performances in certain fields of its activities. Each Senegalese University
will be invited to present a proposal which, if accepted, will lead to the signing of a PBC with the
35
Government. The amount given by the Government will take into account various factors, including an
estimate of the cost of the strategies chosen by the institution, but it will not be directly related to the cost
of the measures that the institution will take to fulfill its commitments.
13. In using PBC, the Government wishes to stimulate universities in applying the transformations
needed to make the Senegalese tertiary education system more competitive. The transformations needed
have been outlined in the TESDP for the period 2011 – 2016.
Indicators
14. In line with its strategy for higher education, the Ministry has selected a set of objectives and
related performance indicators it wants included in the institutions‟ proposals. They are:
Improvement of the internal efficiency of the institutions, as measured by: retention rate of
undergraduate students and repetition rate of these students; promotion rate of the first year.
Improvement in the use of ICT, as measured by: percentage of personal computers per
student; percentage of courses delivered with an explicit use of ICT; number of courses
available online.
Improvement in quality of teaching, as measured by: percentage of programs offered
according to LMD; percentage of teachers having followed training in the LMD requirements
for teaching; number of programs submitted to NQAA for accreditation; implementation of a
functional quality assurance mechanism in universities.
Improvement in the diversity of programs, as measured by: percentage of two-year
undergraduate programs with respect to the total number of undergraduate programs; the
number of scientific courses made available to students from the arts discipline.
Strengthening the links with the labor market, as measured by: percentage of professional
programs with work experience included and credited; percentage of courses offered by
practicing professionals.
Improvement in the governance of the institution: The percentage of administrative staff
trained in managing PBC and LMD systems; the percentage of generated resources in the
overall institution budget; implementation of a system to complete all registration a week
before the courses start; implementation of a control system to decrease the number of
irregular students (étudiants défaillants).
15. The Government and the institutions agreed on a mutual responsibility for the following:
Balanced budget of HEIs and the improvement in the efficiency in the utilization of
resources;
16. The Government is committed to the following:
A revision of the law to increase students fees;
The availability of cash resources at the treasury level to cover HEI expenses.
Implementation
17. The MOHESR will consider proposals that have received the full support of the University
“Comité de gestion” and have been endorsed by the Board. Because PBC will involve an ongoing
dialogue between the institutions and the MOHESR, the MOHESR will request that each institution set
36
up a PBC committee chaired by the academic vice-rector for the preparation and follow-up of the PBC.
Appropriate training will be provided to this committee.
18. Reliable and trusted data are an essential part of any performance-based contract. The Ministry is
aware that institutions do not actually have a totally adequate and computerized information system. The
Ministry expects that this problem will be solved rapidly and will provide the necessary resources and
training to this purpose. The development of the information system is part of the project and is financed
under component 1.
19. The MOHESR will set up a special team to supervise the implementation of PBCs, evaluation
and negotiation of proposals and follow-up of contracts. This team will be under the responsibility of the
“Direction du financement des établissements d’enseignement supérieur” of the GDHE. It will be
composed of respected and experienced persons coming from the MOHESR, the institutions, as well as
from the lay society. An international expert will provide technical assistance to this team.
20. The Directorate General on behalf of the MOHESR will launch PBCs in 2011 for implementation
in 2012. Therefore, in view of the time required to analyze and discuss the proposals, proposals should be
ready by June 2011. The MOHESR will provide the necessary technical assistance for the preparation of
the proposals.
21. Institutions will be invited to submit proposals in line with the priority of the MOHESR and their
own strategic plans. The MOHESR expects them to choose three to five objectives of their strategic plan
which would benefit from the support of the MOHESR and constitute the objective of the contract. In
each case, the institution will specify its goals and targets, identify appropriate indicators and describe the
strategy it intends to take to reach these goals and targets. The proposal should also contain an estimate of
the amount of money the institution intends to devote to each item and strategy of the contract.
22. As soon as the proposals will have been submitted, they will be assessed by the MOHESR‟s PBC
team with respect to their completeness, accuracy, realism, probable effectiveness, efficiency and
alignment with the MOHESR‟s priorities. In doing this assessment, the team will be assisted by
experienced international evaluators.
23. Once this assessment is done, the results will be transmitted to the MOHESR‟s negotiators who
will convey the reaction of the MOHESR to the proposal of the university, study its comments and
discuss with the MOHESR a response to these comments. This dialog between the university and the
MOHESR will go on until an agreement is reached.
24. When both parties agree on the proposal, the GDHE will negotiate an appropriate budget with the
Ministry of Economy and Finance. The agreement will be conveyed to IDA for prior review. Once
included in the Law of Finance, a formal contract will be signed representing the commitments of the
Ministry and the University for the duration of the contract.
Monitoring
25. The contract will be monitored essentially by following the evolution of the indicators. To this
end, the institutions will submit periodic reports every six months. Once a year, the Ministry will organize
a site visit to evaluate progress made in the realization of the contract. An annual external evaluation of
progress in meeting PBC indicators will be carried out and will be used in the annual review of PBC
where allocations will be decided for the subsequent year of the PBC. The annual allocation/revised PDC
will be conveyed to IDA for non –objection.
37
26. When indicators deviate substantially from the expected values, the MOHESR will ask for
explanations. If it is clear that the institution is not making the necessary effort, it will suspend part or the
totality of its payments. Should the MOHESR be convinced that a university is not realizing its plan and
has not taken seriously its commitments, it will cancel the contract. In such cases, the university will have
to return part or the totality of the amount already paid.
27. At the end of the contract, the MOHESR will conduct a final evaluation of each project. Progress
in the implementation of the PBC will also be reviewed during Bank supervision missions and joint semi-
annual reviews.
Subcomponent 2.2: Diversifying and increasing the access to short term tertiary education
28. This subcomponent aims at improving the efficiency of the tertiary education system by reducing
the overall number of years to get a degree with the increase of short-term tertiary education and the
development of alternative ways to access tertiary education. The project would finance the: (i) the
implementation of two-year tertiary education programs linked with the economic needs; and (ii)
establishment of an ICT-facilitated network.
(i) Implementation of an ISEP in Thies
29. The objective of the ISEPs is to improve the efficiency of the tertiary education system by
reducing the average duration of the studies for tertiary education students and by improving the
relevance of the graduates.
30. The institute will provide two-year tertiary education programs linked with the economic needs to
a total of 7,000 students in the following areas: agriculture and food, water and energy, industries and
mining, ICT and telecommunication, management, health and education disciplines. The ISEP will
deliver a DUT degree in four semesters. It will finance also the necessary technical assistance notably the
costs related to the support of a similar and well performing international tertiary education institution to
accompany the development and the implementation of the ISEP. This Institution will be selected on a
competitive basis.
31. The ISEP will be built on government-owned property (property number TF-2913) assigned for
the Polytechnic School and Thies University. The following infrastructure will be built and equipped: 1
auditorium, 4 amphitheatres, 30 classrooms, 15 multimedia classrooms, 1 library, 5 workshops, and the
administration facilities.
(ii) Establishment of an ICT-facilitated network .
32. The subcomponent will finance:
The expertise and technical assistance for the feasibility studies for an internet network;
The upgrading of the technical center
The extension and improvement of the campus networks in UGB and UCAD and the
interconnection;
Implementation of a campus network in Bambey, Thies and Ziguinchor
Development of a Wi-Fi network in all five universities;
Training and capacity building of the staff managing
Subcomponent 2.3: Improving the learning environment
38
33. This subcomponent aims at improving the quality of the facilities for a better learning
environment. The sub-component will finance the extension of internet, the purchase of equipment and
the rehabilitation and extension of Thies, Bambey, UGB, and Ziguinchor universities and the
rehabilitation of Dakar University as follows:
Thies University (US$6 million): Construction of infrastructures for the three technologic
schools, Rehabilitation and construction of infrastructures for the Health school, and for the
Rectorat in addition to the finalization of the auditorium and a library.
UGB Saint-Louis (US$6 million): Construction of the infrastructure for the education science
and sports school.
Bambey University (US$4 million): Construction of 1 amphitheatre of 200 places, 14 classrooms,
10 offices for teachers and 2 laboratories.
Ziguinchor Universtity (US$6 million): Construction of two blocs of facilities for two schools
and one amphitheatre of 500 places.
UCAD Dakar: Rehabilitation of 6 amphitheatres, the Rectorat and the baccalaureat Office.
34. Potential construction of the project new university in Dakar: Under component 1, the project
is financing the feasibility studies‟ costs including the bidding documents for a second tertiary education
in Dakar. If the studies are conclusive, the project could possibly be restructured to introduce a new sub-
component related to that activity. The Government has already identified the potent ial location of this
institution and the rector has been identified and is being appointed to manage the studies and
implementation.
Project costs in million USD
Designation Total IDA Gov
Component 1: Strengthening the governance of the tertiary
education system 8.1 7.1 1.0
Implementation of the Chancellery and the NQAA 1.6 1.6 0.0
Project Management 2.5 1.5 1.0
Implementation of a monitoring and evaluation system 1.6 1.6 0.0
Studies and Assessments 2.4 2.4 0.0
Component 2: Improving the effectiveness of the tertiary
education institutions 85.0 60.0 25.0
Performance based contracts 43.0 33.0 10.0
ISEP building and equipment 15.0 10.0 5.0
Information Technology and Communication 2.0 2.0 0.0
Upgrading existing universities 25.0 15.0 10.0
Rehabilitation (UCAD) 3.0 2.0 1.0
New construction and rehabilitation (UGB) 6.0 3.5 2.5
New construction and rehabilitation (Bambey) 4.0 2.5 1.5
New construction and rehabilitation (Ziguinchor) 6.0 3.5 2.5
New construction and rehabilitation (Thies) 6.0 3.5 2.5
Unallocated 34.2 34.2 0.0
Total 127.3 101.3 26.0
39
Annex 3: Implementation Arrangements
1. Project institutional and implementation arrangements
1. The Steering Committee: The MOHESR will have overall responsibility for sector and policy
coordination, and Minister and/or his designee will chair the Steering Committee consisting of the rectors
of universities, representatives from the private sector, the private education providers, the DGCBEP, and
the Ministry of economy and finance. The GDHE will be the secretariat of the Steering committee that is
currently overseeing the preparation of the project.
2. The GDHE: On Behalf of the Minister, the GDHE will be in charge of the overall technical
management of the project, coordination of the education sector reform and oversight of PBCs . It will
implement and manage the negotiation of performance contracts, supervise the performance-based
contracts, decide on allocation of block grants, be responsible for the mapping of new institutions,
develop the information and statistics system, and manage the day-to-day implementation of the project.
3. The GDHE is a new structure in MOHESR in charge of coordination of HEIs. It will replace the
Directorate of Higher Education and will have greater capacity and authority in order to effectively
coordinate HEIs and carry out its mandate to improve the governance of the sector. The project will
support its implementation and capacity building through equipment, technical assistance and training to
make it an effective institution that will be in charge of leading the development of the tertiary education
system.
4. HEIs will be in charge of the implementation of their respective activities. Senegal tertiary
education systems are autonomous and are familiar with receiving block grants from the Government for
their functioning. Senegalese HEIs have sufficient capacity to manage and implement their activities.
They are already well organized and the project will support the strengthening of the governance bodies,
management structures and systems. They are not familiar with World Bank procedures in terms of
procurement but training will be provided by the project in that area to reinforce the procurement
capacities. Each HEI has put in place a University management unit that will be in charge of
implementing the PBCs.
5. The Directorate of General Administration and Equipment (The DAGE): The DAGE of the
MOHESR will be in charge of the overall financial management and disbursement for the project in
coordination with the Directorate of Debt and Investment (DDI) at the Ministry of economy and finance.
6. The DGCBEP under the Ministry of Habitat, Construction and Hydraulic will be in charge of
managing the construction of facilities on behalf of universities. DGCBEP is also in charge of safeguards
compliance. The General Directorate has a strong experience of managing construction for the tertiary
education system with an average program of $12 billion per year. The project will provide technical
assistance in terms of architectural studies and procurement management, as well as the necessary
equipment to handle the construction program.
2. Financial Management and Disbursements
7. The following are the financial management arrangements for the project.
8. Budgeting arrangements: The budgeting process will be clearly defined in the FM Manual and the
budget will be adopted by the Program Steering Committee before the beginning of the year. Annual draft
budgets will be submitted to the Bank‟s non objection before adoption and implementation.
40
9. Accounting arrangements: The current accounting standards in use in Senegal for on-going Bank-
financed projects will be applicable. SYSCOHADA is the assigned accounting system in West African
Francophone countries. Project accounts will be maintained on a cash basis, supported with appropriate
records and procedures to track commitments and to safeguard assets. Annual financial statements will be
consolidated by the DAGE of MoHESR in accordance with the SYSCOHADA.. The ROSC Accounting
and Auditing identified some differences with the International Accounting Standards but they are not
expected to impact the project. Accounting and control procedures will be documented in the FM Manual.
Internal control and internal auditing arrangements
10. Internal Auditing: A consultant will be recruited to perform quarterly ex-post audits
11. Internal Control Systems: A FM manual will be prepared to document the financial management
arrangements including internal controls, budget process, assets safeguards, and clarify roles and
responsibilities of all the stakeholders.
Funds Flow and Disbursement Arrangements
12. Disbursement Methods: Disbursements under the Credit would be IFRs-based, Direct Payment
and SOE (Statement of Expenditures) methods and special commitments will apply as appropriate.
13. Designated Accounts: Six (6) Designated Accounts (DAs) will be opened for each university and
the DAGE at commercial banks to facilitate payment for expenditures of the Performance Based
Contracts by universities and the others expenditures by the DAGE. DAs will be managed according to
the disbursement procedures described in the Administrative, Accounting and Financial Manual and
Disbursement Letter which will be discussed in detail with the relevant Government officials during
negotiations. The MoHESR „s DA would be managed by DDI in coordination with the DAGE.
Universities DAs will be on the oversight of the DDI.
14. The allocation of the Designated Account will cover approximately six months of expenditures.
The minimum value of direct payment and special commitment is 20 percent of outstanding advance
made to the DA. Each university DA‟s allocation will be based their annual performances monitored
through agreed indicators and prior to Bank no objection.
Disbursement schedule
Financing/Years FY12 FY13 FY14 FY15 FY16 Total
Componebt 1 0.7 2 1.8 1.6 2 8.1
IDA 0.5 1.8 1.6 1.4 1.8 7.1
Government 0.2 0.2 0.2 0.2 0.2 1
Component 2 9.5 17 19.8 19.9 18.8 85
IDA 9.5 13 13.8 11.9 11.8 60
Government 0 4 6 8 7 25
Unallocated 0 0 10 14.9 9.3 34.2
Total 10.2 19 31.6 36.4 30.1 127.3
IDA 10 14.8 25.4 28.2 22.9 101.3
Government 0.2 4.2 6.2 8.2 7.2 26
41
Funds Flow Arrangements: Funds flow arrangements for the project are as follows:
Funds Flow Chart
Transfer of funds
Direct payment
Transmission of documents
Financial Reporting Arrangements
15. The DAGE of the MoHESR will produce a consolidated quarterly unaudited Interim Financial
Reports (IFR). This consolidated IFR will include specific IFRs prepared by each university for
designated accounts and the related project account. The IFRs are to be produced on a quarterly basis and
submitted to the Bank within 45 days after the end of the calendar quarterly period. MoHESR will prepare
and agree with the Bank on the format of the IFRs by negotiations.
16. The MoHESR will also produce the project‟s consolidated Annual Financial Statements and these
statements will comply with SYSCOHADA and World Bank requirements. These Financial Statements 1
will comprise of:
which recognizes all cash receipts, cash payments and
cash balances controlled by the MoHESR.
purposes as specified in the relevant financing agreements
Auditing Arrangements
17. The Loan Agreement will require the submission of Audited Financial Statements for the project
and for each university to IDA within six months after year-end. External auditors with qualification and
experience satisfactory to the World Bank will be appointed to conduct an annual audit of the project‟s
financial statements, including the review of activities at HEIs level, and for each university‟s financial
Designated
Accounts
DAGE
(DDI)
IDA
Government
DDI
Suppliers
Designated
Accounts
(universities) MoHESR
42
statement. A single opinion on the Audited Project Financial Statements in compliance with Internation al
Federation of Accountant (IFAC) will be required. The external auditors will prepare a Management
Letter giving observations and comments, and providing recommendations for improvements in
accounting records, systems, controls and compliance with financial covenants in the grant Agreement.
The table below summarizes the auditing requirements:
Audit Report Due Date
Annual audited financial statements and Management Letter for the project
(including reconciliation of the six (6)Designated Accounts with
appropriate notes and disclosures).
Within six months after the
end of each fiscal/financial
year. Annual audited financial statements and Management Letter for
universities of Dakar, Saint Louis, Thies Zighinchor, Bambey
Within six months after the
end of each fiscal/financial
year. The following actions need to be taken in order to enhance the financial management arrangements for
the Project:
18. During the mid-term review, the financial management, audit, procurement and monitoring
systems of HEIs will be assessed to decide whether it would be feasible to move the project to a
disbursement-linked approach. An evaluation will be carried out to inform the mid-term review.
19. The following actions need to be taken in order to enhance the financial management
arrangements for the Project:
FM Action Plan
Action Date due by Responsible
1 Develop a FM manual including internal
controls, budget process, assets safeguards,
and roles and responsibilities of the
stakeholders
Before effectiveness
(effectiveness
condition)
MoHESR
2
Acquire a “multi-sites”accounting software
for the DAGE of MoHESR‟s and connected
to each universities
Before Effectiveness
(effectiveness condition)
MoHESR
3 Appoint an accountant within each university
under terms of reference acceptable to the
Bank
Before Disbursement of
the Performance based
contracts (Disbursement
condition)
HEIs
4 Recruit the external auditors which shall
conduct the audits of the Financial
Statements of the Project as well as the
Universities‟ Financial Statements
Not later than four
months after
effectiveness
MoHESR
5
Appoint a consultant assuming the functions
of internal auditor to perform quarterly ex-
post audits under terms of reference and terms
and conditions acceptable to the Association.
Not later than six
months after
effectiveness
MoHESR
6 The set up of the financial and accounting Before Disbursement of MoHESR
43
Action Date due by Responsible
management software for the Project,
including at the Universities‟ level, in a
manner satisfactory to the Association.
the Performance based
contracts
(Disbursement
condition)
7 Recruitment of the external monitoring and
evaluation experts
Before Disbursement of
the Performance based
contracts
(Disbursement
condition)
MoHESR
3. Procurement
A. General
20. Procurement in the context of the country. Following the Government‟s approval of the 2003
CPAR action plan, the Government has adopted in 2007 a new Procurement Code (decree n° 2007-545
dated April 25, 2007) which complies with the WAEMU‟s Procurement Directives and best international
practices. In accordance with this code: (a) a Public Procurement Directorate was created in 2007 (decree
N° 2007-547 dated April 25, 2007) for controlling procurement transactions of any public contracting
authority; and (b) a Public Procurement Regulatory Authority (Autorité de Régulation des Marchés
Publics––ARMP) was set up in 2007 (Decree n° 2007-546 dated April 25, 2007) for handling policies,
complaints and audits. These two entities are operational. In addition, the Government already prepared
main national bidding documents which have been adopted by the ARMP. Except the limitation to
bidders from WAEMU for national competitive bidding (NCB), there was no major deviation of this
Code from the Bank‟s Directives.
21. Applicable guidelines. Procurement for the proposed Project would be carried out in accordance
with the World Bank‟s "Guidelines: Procurement under IBRD Loans and IDA Credits," dated May 2004
and revised in October 2006 and January 2011; and "Guidelines: Selection and Employment of
Consultants by World Bank Borrowers" dated May 2004 and revised in October 2006 and January 2011,
guidelines on Preventing and Combating Fraud and Corruption in Projects by IBRD and IDA Credits
Grants, dated October 15, 2006 and revised in January 2011, and the provisions stipulated in the Legal
Agreement. The items under different expenditure categories are described in general below. For each
contract to be financed by the Credit, the different procurement methods or consultant selection methods,
the need for pre-qualification, estimated costs, prior review requirements, and timeframe are agreed
between the Borrower and the Bank in the Procurement Plan. The Procurement Plan, defining the
procurement and selection methods and the requirement of IDA prior review, will be updated at least
annually or as required to reflect the actual project implementation needs and improvements in
institutional capacity.
22. Procurement Documents. Procurement will be carried out using the Bank‟s Standard Bidding
Documents (SBDs) or Standard Request for Proposal (RFP) respectively for all ICB for goods and
recruitment of consultants. For NCB, while waiting for the government and the Bank to respectively
validate and give the no objection on the national bidding documents in preparation, the Borrower will
use the WB‟s SBD for ICB for goods and the WB‟s RFP for recruitment of consultants. In the same vein,
the Sample Form of Evaluation Reports developed by the Bank, will be used until the new national
44
samples are reviewed and satisfactory to the Bank. The ICB Threshold for works is US$5,000,000 in
Senegal and for goods US$500,000.
23. Advertising procedures. General Procurement Notice (GPN), Specific Procurement Notices
(SPN), Requests for Expression of Interest, results of the evaluation and contract award should be
published in accordance with advertising provisions in the following guidelines: "Guidelines:
Procurement Under IBRD Loans and IDA Credits" dated May 2004 and revised by October 2006 and
May 2010; and "Guidelines: Selection and Employment of Consultants by World Bank Borrowers" dated
May 2004 and revised by October 2006 and May 2010.
24. Procurement of works: Civil works procured under this project would include but are not limited
to: extensions and rehabilitation of universities and the construction of the ISEP. Civil works estimated to
cost US$5,000,000 equivalent per contract may be procured under ICB. Civil works contracts with an
estimated value of less than US$5,000,000 per contract may be procured under NCB. Civil works
estimated to cost less than US$100,000 per contract may be awarded through Shopping, with at least three
quotations obtained from qualified contractors in response to a written invitation, giving the description of
works, the basic specifications, and the required completion time.
25. Procurement of Goods: Goods procured under this Project would include but are not limited to
the acquisition of office equipment and furniture, IT equipment and software, ISEP equipment, inputs
through performance-based procurement. Goods estimated to cost above US$500,000 equivalent per
contract may be procured under ICB. Goods estimated to cost less than US$500,000 may be procured
under NCB. Goods estimated to cost less than $50,000 equivalent per contract may be procured under
contracts awarded either on the basis of shopping procedures, depending on local availability.
26. Selection of Consultants: Consultants Services procured under this Project include but are not
limited to: consultants for technical assistance, capacity building for institutional reform, training
activities, audits and execution of studies (i.e., feasibility of ISEPS‟s network). Short lists of consultants
for services estimated to cost less than $200,000 equivalent per contract may be composed entirely of
national consultants in accordance with the provisions of paragraph 2.7 of the Consultant Guidelines. The
procurement plan will indicate the selection methods and all cases where IDA review and no objection are
needed.
27. Procurement of non-consulting services: Non-consulting services to be financed under the
Credit will include mainly communication and small operating needs for the project execution. Those
services are likely to be of small value, and as such, they may be procured by shopping in accordance
with paragraph 3.5 of the procurement Guidelines. In case of large value, NCB procedures will be used in
accordance with the same provisions as procurement of goods.
28. Operating Costs: Incremental recurrent expenditures will be procured using the implementing
agencies‟ administrative procedures which will be elaborated and found acceptable to the Association.
Therefore, procurement procedures and SBDs to be used for each procurement method, as well as model
contracts for goods procured, will be presented in the Administrative Procedures Manual that will be
developed by DAGE for the executing agencies.
B. Assessment of the Agencies’ capacity to implement procurement
29. Procurement activities will be carried out by the DAGE, the DGCBEP and the five universities.
Each of these implementation agencies has, based on the national procurement reform effective since
January 2008, a CM (Commission des Marchés), which is in charge of bids/proposals opening and
45
contracts award; and a CPM (Cellule de Passation des Marchés) in charge of quality control and
procurement plans. In addition, they all have experience in handling procurement activities using national
procedures and standard bidding documents and certain implementation agency staff in place have been
trained on World Bank and/or public procurement procedures.
30. The DAGE is staffed by: (i) a Director (a Mathematics Teacher, with a DESS in Finance and
Bank); and (ii) a Deputy (a Secretary of Administration, who is Chief of Budgetary and Financial Officer
of The DAGE).
31. The DGCBEP is staffed by: (i) a Director (Civil Engineer); (ii) a pool of four Civil Engineers,
one of whom is the Chief of the CPM (Cellule de Passation de Marchés); (iii) a Secretary of
Administration, who is Chief of the SAF (Service Administratif et Financier); and (iv) an Executive
Assistant.
32. Universities are generally staffed by teachers (comprising lawyers), civil administrators, business
university administrators, IT specialists, inspectors and controllers of treasury, and civil engineering
technician (level BAC + 2 years).
33. The technical staff of IAs will be responsible for preparing the technical aspects of bidding
documents, including technical specifications and terms of reference. The procurement function will be
carried out with the support of a Procurement Specialist who will be located in the DAGE. The strategy is
to reinforce the staff of executing agencies, particularly the DAGE which will be fully responsible for the
fiduciary function.
34. A capacity assessment of the IAs to implement procurement actions for the project was carried
out by the Bank‟s procurement specialist between December 14, 2010 and January 7, 2011. The
assessment reviewed organizational structures for implementing the Project and the interaction between
the Project‟s staff responsible for procurement and the executing agencies. Most of the issues/risks
concerning the procurement component for implementation of the Project have been identified and
include: (a) absence of an Administrative, Procurement, Accounting, and Financial procedures manual;
(b) the need for more space and/or equipment to file archives. The procurement specialist for a full-time
position has been recruited prior to negotiations to support and train the staff and experts of the DAGE,
the DGCBEP, the five universities and the other directorates involved in Project implementation, in
World Bank basic procurement procedures.
35. The technical responsibilities in preparing procurement packages, including technical
specifications and terms of reference, and amending basic procurement document templates, such as data
sheets, will be carried out by the relevant specialists/experts and not passed on to the procurement team.
The overall project risk for procurement is Medium-I and is expected to be Low the above mentioned
mitigation measures are implemented.
Procurement Plan
46
36. The Borrower has developed a procurement plan for project implementation which will provide
the basis for the procurement methods. This plan will be reviewed and agreed between the Borrower and
the World BankTeam during appraisal and will be available at the DAGE, Building Administratif, 5ème
étage , Dakar (Senegal). It will also be available in the project‟s database, in the Senegal Procurement
Website (www.marchespublics.sn) and in the Bank‟s external website. The Procurement Plan will be
updated in agreement with the Project Team annually or as required to reflect the actual project
implementation needs and improvements in institutional capacity.
C. Frequency of Procurement Supervision
37. In addition to the prior review supervision to be carried out from Bank offices, the capacity
assessment of the IAs has recommended supervision missions at least every six (6) months to visit the
field to carry out post-review of procurement actions.
D. Details of the Procurement Arrangements Involving International Competition
1. Goods and Non Consulting Services
38. List of contract packages to be procured following:
1. Goods, Works, and Non Consulting Services
Prior review:
Method Levels Comments
1. Goods =>US$500,000 Prior review
3. Works =>US$5,000,000 Prior review
5. Direct Contracting All contracts Prior review
Ref.
N°
Contract (Description)
Estimated
cost (US $)
Procur
ement
Method P-Q
Dome
stic
Prefe
rence
Revi
ew
by
Ban
k
Expected
Bid
Opening
Com
ment
s
Component 1 : Improving
Higher Education Governance
1.1 DGES Building 626,305 NCB NO NO
Prior
i 11/4/2012
47
1.2
Supplies for DGES and the
National Agency Quality
Assurance 156,576 NCB NO NO Post 10/14/2011
Component 2 : Improving the
efficiency of Higher Education
Institutions
2.1 Supplies for the Pedagogy
University Unit 417,537 NCB NO NO Post 5/22/2012
2.2
Supplies for Central Data
Center, Technical Center and
Data centers for the 5
universities 584,551 ICB NO NO Prior 7/3/2012
2.3 Rehabilitation interim phase of
ISEP 417,537 NCB NO NO Post 2/22/2012
2.4 Furniture interim phase of ISEP 626,305 ICB NO NO Prior 2/7/2012
2.5 First ISEP Construction 9,645,094 ICB NO YES Prior 9/18/2012
2.6 Supplies for ISEP offices 41,754
Shoppin
g NO NO Post 11/14/2011
2.7 Vehicles for the ISEP 104,384 NCB NO NO Prior 10/14/2011
2.8
Other ISEP Equipment into 2
lots: Lot 1: Teaching facilities
and library, Lot 2: Scientific
equipment 1,043,841 ICB NO NO Prior 8/10/2012
2.9 ISEP Social Equipment 146,138 NCB NO NO Post 7/3/2012
48
2.10
Supplies IT Technical Center
Air conditioning and others...
etc) 104,384 NCB NO NO Prior 12/19/2011
2.11
Acquisition of network
equipment for the Central
Technical Centre IT node 104,384 NCB NO NO Prior 12/19/2011
2.12
Setting up computer networks in
the 5 universities campuses in 3
lots): Lot 1: Extension,
improving the campus computer
network interconnection (UGB),
Lot 2: Establishment of campus
computer networks and
interconnection (Thies,
Bambèye and Ziguinchor) Lot
3: Equipment and Installation of
wireless networks for the 5
universities 960,334 ICB NO NO Prior 5/31/2012
2.13
Setting up a system for long
distance learning in the 5
universities 313,152 NCB NO NO Post 5/7/2012
2.14 Rehabilitation of UCAD 2,790,000 NCB NO NO Prior 8/22/2012
2.15
New construction and
rehabilitation of UGB 5,580,000 ICB NO YES Prior 11/15/2012
2.16
New construction and
rehabilitation of Bambey 3,720,000 NCB NO NO Post 9/24/2012
2.17
New construction and
rehabilitation of Ziguinchor 5,580,000 ICB NO YES Prior 11/10/2012
2.18
New construction and
rehabilitation of Thies 5,580,000 ICB NO YES Prior 11/17/2012
TOTAL 42,717,641
49
(ii) ICB contracts estimated to cost above US$500,000 per contract, the first two contracts irrespective
of the cost estimate and all direct contracting will be subject to prior review by the Bank.
2. Consulting Services:
Prior review:
Ref.
N° Description of Assignment
Estimated
Cost (US $)
Selection
Method
Review
by Bank
Expected
Proposals
submission
Comments
Component 1 : Improving
Higher Education
Governance
1.1 Architectural Studies and
DGES construction follow-up 169,102 SFQC Post 06/17/2011
1.2 Technical Inspection of UCAD
DGES Construction Works 31,315 SFQC Post 4/6/2012
1.3 Technical Assistance for DGES
set up 75,157 CI Post 06/24/2011
1.4 Technical Assistance National
Agency for Quality Assurance 100,209 CI Prior 10/03/11
1.5
Long Term Technical
Assistance for M&E system
update 150,313 CI Prior 09/16/2011
Selection method Prior review level Comments
1. Firm selection >=US$200,000 Prior review
2. Individual consultant selection >=US$100,000 Prior Review
3. Agreements (Firms and
individuals)
all contract types Prior review
50
1.6
National Technical Assistance
Monitoring & Evaluation
system update 75,157 CI Post 09/23/2011
1.7 Developing and putting in place
an M&E software 271,399 SFQC Prior 07/18/2011
1.8 International Consultants for
M&E system update 100,209 CI Prior 05/12/11
Component 2 : Improving the
efficiency of Higher
Education Institutions
2.1
Recruitment of national
technical assistance for the
implementation of the LMD 300,626 CI Prior 09/16/2011
2.2
Technical assistance for
University Pedagogy Unit
establishment 100,209 CI Prior 09/16/2011
2.3 LMD management software
extension development 125,261 SFQC Post 02/22/2012
2.4 Communication Strategy
development on LMD 93,946 QC Post 05/18/2011
2.5
Development of specifications,
expertise and feasibility study,
follow up for the Development
of the National Information
System for Higher Education;
Expertise for the
implementation of the existing 62,630 QC Post 15/08/11
2.6 Technical Assistance for SI
development for Ministry and 313,152 SFQC Prior 8/24/2011
51
University Governance
2.7
Technical Assistance for
management and contracts
follow up 162,839 CI Prior 05/13/2011
2.8
Architectural studies and follow
up on the works on the first
ISEP 767,223 SFQC Prior 07/20/2011
2.9 Construction Work Technical
Inspection of first ISEP 548,017 SFQC Prior
2.10
Feasibility Study and
development of specifications;
Expertise for the
implementation of the ICT 37,578 CI Post 9/5/2011
2.11 Architectural studies for
rehabilitation UCAD 210,000 SFQC prior 9/25/2011
2.12
Architectural studies for
constructions UGB 420,000 SFQC prior 9/10/2011
2.13
Architectural studies for
constructions Bambey 280,000 SFQC prior 8/31/2011
2.14
Architectural studies for
constructions Ziguinchor 420,000 SFQC prior 9/5/2011
2.15
Architectural studies for
constructions Thies 420,000 SFQC prior 9/15/2011
TOTAL 5,234,342
(iii) Consultancy services estimated to cost above US$200,000 per contract for firms and US$100,000 per
contract for individual consultants, the first two contracts irrespective of the cost estimate and every
single source selection of consultants (firms) for assignments will be subject to prior review by the Bank.
52
(iv) Short lists composed entirely of national consultants: Short lists of consultants for services estimated
to cost less than US$200,000 equivalent per contract may be composed entirely of national consultants in
accordance with the provisions of paragraph 2.7 of the Consultant Guidelines.
4. Environmental and Social (including safeguards)
39. The following table presents the Safeguard policies triggered by the Tertiary Education
Governance and Financing Project. The Safeguard Screening category is S2 and the Environmental
Screening is category B-Partial.
Table: Safeguard Policies Triggered by the Project
Safeguard Policies Triggered by the
Project
Yes No
Environmental Assessment (OP/BP
4.01) [x] [ ]
Natural Habitats (OP/BP 4.04) [ ] [x]
Pest Management (OP 4.09) [ ] [x]
Physical Cultural Resources (OP/BP
4.11) [x] [ ]
Involuntary Resettlement (OP/BP
4.12) [X] [ ]
Indigenous Peoples (OP/BP 4.10) [ ] [x]
Forests (OP/BP 4.36) [ ] [x]
Safety of Dams (OP/BP 4.37) [ ] [x]
Projects in Disputed Areas (OP/BP
7.60)*
[ ] [x]
Projects on International Waterways
(OP/BP 7.50) [ ] [x]
40. The safeguards category for the project is B, with OP/BP 4.01, 4.11, and 4.12 being triggered.
No significant, adverse or irreversible environmental and social impacts are expected, as identified in the
EA, except nuisance and pollution-related impacts during the work for building new educational
infrastructure and upgrading existing ones. These expected environmental impacts can be managed
through mitigation measures and actions as proposed in the Environmental and Social Management
Framework (ESMF) for the project and in the specific Environmental Management Plans (EMPs) .
41. In addition, the project is expected to improve the security, work and livelihood conditions of
students, teachers and workers in the selected university centers. During implementation of the proposed
investments, consultations will continue on a permanent basis regarding the project potential
environmental and social impacts. These consultations will involve all stakeholders, including trade
unions, student associations, and community-based organizations.
Measures taken to address safeguard issues
* By supporting the proposed project, the Bank does not intend to prejudice the final determination of the parties' claims on the
disputed areas
53
42. The Project has a national scope in terms of its institutional, and policy aspects. However, with
respect to the physical investments, the existing Universities of Thiès, Bambey, Saint-Louis, Ziguinchor
and Dakar are the primary targets. In addition, a new tertiary institute, the ISEP, will be built in Thies.
43. The expected impacts associated with the preparation and construction works can be managed
through mitigation measures and actions as proposed in the Environmental and Social Management
Framework (ESMF) for the project. The ESMF also includes a list of contractual environmental
requirements to be incorporated in the bidding documents, including compliance with specific
Environmental Management Plans (EMPs) for the universities (already prepared for Bambey, Thies and
Ziguinchor, and once investments are better defined, for St-Louis and Dakar). An EMP, also contractually
binding, will be prepared for the ISEP once feasibility and architectural studies are completed. In
addition, if a decision is made during project implementation to finance the construction (instead of the
rental) of a new building for the General Directorate of Higher Education (GDHE), the ESMF and RPF
will be applied accordingly
44. It is expected that the potential adverse social impacts will be small-scale and site-specific typical
of Category B projects. Moreover, the project is expected to generate significant social benefits through
increased security within campuses, better access to water and sanitation services for students and
workers, better working and hygiene conditions and contribute positively to livelihood conditions with
employment opportunities.
45. OP 4.12 on Involuntary Resettlement is triggered because in some of the sites, specifically at the
new ISEP and Bambey University, project activities could impact, either temporarily or permanently, the
livelihoods of farmers who cultivate or raise poultry within the potential areas identified for sitting the
new infrastructure. A Resettlement Policy Framework (RPF) has been prepared. Since the potential
impacts on livelihoods are expected to be limited (i.e. small number of farmers and lands affected),
Resettlement Action Plans (RAPs) will be prepared as needed once the specific location of the proposed
infrastructure is known.
46. In the case that the Physical Cultural Resources OP 4.11 is triggered during construction of
infrastructure, and based on this policy, mitigation measures to prevent adverse impacts and protect the
sites as sources of valuable scientific and historical information, as assets for economic and social
development, and as integral part of the local cultural identity will be implemented in accordance with the
Bank policy and Senegalese law.
47. In order to ensure the sustainability of the investments, the project will also implement a capacity
building strategy in the areas of environmental and social management for key stakeholders like the
DAGE of the MOHESR, the DGCBEP, and other participating actors. The capacity building strategy
will be articulated around the participation of student associations not only as benef iciaries but as change
agents. The consultation and participation will be a continuous process during implementation through
different media to meet the needs of identified stakeholders and partners.
Mechanisms to supervise and monitor agreed plans
48. The national legal framework for environmental management in Senegal spells out the roles and
responsibilities of different Government ministries, departments and agencies as well as other
stakeholders. Substantial progress in planning and implementation of safeguard measures has been made
over the years through a number of Bank-funded operations, including the previous and ongoing
education sector operations. Notwithstanding this progress, significant institutional and technical capacity
for environmental management still needs to be provided at all levels. Capacity building requirements
54
will be addressed in detail in the ESMF and specific EMPs and budgets will be provided for under the
project to implement the recommended capacity improvement measures both in environment and social
aspects.
49. The GDHE at the Ministry of Higher Education and Scientific Research (MOHESR) will be
responsible for overall coordination during project preparation, implementation and supervision, whereas
the Focal Point for Environmental and Social Safeguards (FPESS) will be at the Directorate for
Construction of Public Buildings (DGCBEP), within the Ministry of Habitat, Construction and
Hydraulics. DGCBEP will be in charge of the technical execution of project activities, while the FPESS
will coordinate with the university implementation team to carry out the local monitoring of social and
environmental issues during construction works. The Bureaux d’Etude et Contrôle will be responsible,
under the oversight of DGCBEP, for the regular control and supervision of works, including social and
environmental issues. Finally, the office of monitoring and impact evaluation of the Directorate of
Environment (DREEC) will take the lead for external monitoring and oversight of safeguard aspects. For
all construction activities, DREEC will validate both the screening process, including the consultation
process, and the Social and Environmental Impact Assessments (ESIAs) when these are required.
Finally, and as for other project activities, the Bank will also provide regular implementation support on
safeguard issues
50. DGCBEP has limited experience in management of social and environmental aspects of projects,
which will require the Project to allocate resources to strengthen its institutional and technical capacity
through specific training and the hiring of additional support staff or temporary consultants as needed. In
addition, the project will include a budget provision for DGCBEP to hire a consultant, on a needs basis, to
provide support in overseeing the implementation of appropriate environmental management and
environmental mitigation measures by contractors during the construction and rehabilitation of
infrastructure in the universities and during the construction of ISEP. In addition, the terms of reference
for the recruitment of the Bureaux de Contrôle will include the requirement to include safeguards
specialists in their teams and to report regularly on safeguards implementation.
Environmental and social risks or issues that go beyond the coverage of the safeguards policies
51. Overall, the project is expected to generate significant social benefits through increased security
within campuses, better access to water and sanitation services for students and workers, better working
and hygiene conditions and contribute to impact positively to neighboring communities with employment
opportunities. The project is therefore expected to contribute positively to livelihood opportunities.
52. Most of the investments are in areas where the potential environmental impacts can be guided by
the ESMF and RPF, with EMPs and RAPs being prepared as and when necessary. In such cases,
proposed actions will also be included in the operations plans for these sites to minimize nuisance to
surrounding communities as well as to avoid environmental and other social impacts and risks, including
land acquisition/involuntary resettlement.
53. The ESMF, EMPs for the educational institutions in Bambey, Thies and Ziguinchor, and
RPFhave been disclosed in Senegal and at the Bank's Infoshop prior to appraisal.
5. Monitoring & Evaluation
54. The M&E arrangement is developed in Annex 1. The Senegal tertiary education system is
building a computerized information management system integrating university subsystems into a
55
national one. Component 1.3 will support the system building. The following instruments will be
produced to monitor the progress in achieving the project‟s outcomes:
Statistical yearbook:
Interim Financial Reports (IFRs)
Universities‟ PBC progress reports
The status of the tertiary education system
Annual external evaluation of PBC implementation
Specific studies
Capacities are available at the university level but needs to be reinforced. Capacities at the central level
are weak and will be built with the support of long-term technical assistance financed by the project.
56
Annex 4: Operational Risk Assessment Framework (ORAF)
Negotiations and Board Package Version15
Project Development Objective(s)
The project development objective is to enhance the efficiency and quality of the higher education system and the oversight and accountability of HEIs.
PDO Level Results Indicators:
1. The percentage of academic programs that meet minimum quality standard as set by the National Quality Assurance Authority.
2. Promotion rate for the first year by university
3. Universities with performance-based contracts negotiated and overseen by GDHE (%)
4. Percentage of institutions that achieve at least 80 percent of the annual targets set in the performance-based contracts.
5. Direct project beneficiaries (number), of which female (%)
Students in the new ISEP School.
Students enrolled in the HEIs
Risk Category
Risk Rating
Risk Description Proposed Mitigation Measures
Project Stakeholder Risks
M-I Lack of ownership by stakeholders. During the last project, insufficient stakeholder involvement in the design and implementation of the program undermined the ability of the Government to successfully implement its program. Successful implementation will
A communications strategy will be developed and a communication specialist hired by the Government team will help to shape the messaging of the reform and work with media to sell the program and build support.
15 This is the version that should be used for Negotiations and submission for Board Approval.
57
require buy-in and involvement of the universities, colleges, teachers and students as well as Government.
Continued Bank engagement with a core team almost entirely field-based also enhances the likelihood that reforms and project implementation are being followed.
Implementing Agency Risks
M-I Getting a performance-based contract mechanism up and running is complex, takes time and successful implementation depends on strong institutional capacity at the institutional levels. It also depends on clear, transparent and objective criteria to avoid favoritism and bad governance. In addition, to have an effective PBC mechanism, universities will have to buy in to the notion of accountability and be involved in the development of the procedures manual. The General Directorate of Higher Education is not yet strong enough to manage the implementation of the agreed reforms Risks related to fraud in big contract management
A manual of procedures will be developed and will define a peer review mechanism transparency, fairness and quality assurance to the process of selection. Technical assistance and financial support will be provided to strengthen the GDHE. Under the project, big contracts will be prior reviewed and a post review exercise of small transactions will be carried out
Project Risks
Design
M-I Complexity of the project design and a large number of reforms. Slow pace of implementing reforms. Experience from the last project showed that the reasons for not implementing reforms were due to political expediency, bad policy advice from senior officials, lack of technical capacity to implement reforms and a reform agenda that was too ambitious The monitoring and evaluation system at the
Technical assistance and close implementation support will be provided. Adequate national and international technical
58
systemic level is weak and is not integrated with M&E at institutional levels. Or, an effective M&E is a key element for a successful implementation of the performance-based contract program.
assistance is being provided to put in place a strong and effective M&E system. This support will be pursued during implementation. Technical assistance will continue to be provided.
Social and Environmental
Low Negative environmental impact with new construction
As part of the preparation for this project as well as the ESMF, EMPs, and RPF, stakeholder consultations in the target areas were organized. Relevant issues raised included sensitization and awareness in maintenance of infrastructure and capacity building for key stakeholders like student associations. During implementation of proposed investments, consultations will continue on a permanent basis to take place with all stakeholders regarding the education sector project‟s potential environmental and social impacts issues. In addition, the project will provide capacity building on environmental and social safeguards to the relevant institutions. As other sites and works are finalized, EMPs and RAPs will be prepared as and when necessary.
Program and Donor
Low Lack of coordination may reduce effectiveness Regular communication and meeting with the local education group will be held.
Delivery Quality
High Readiness of the performance-based contract mechanism, the fiduciary management, the new institutional framework with the GDHE and the NQAA, and the development of short term vocational education aligned to the private sector needs The DGHE is a new institution that needs a clear leadership to be able to drive the expected institutional changes. An inadequate staffing
Training will be provided for each university unit in procurement, financial management and M&E to strengthen the capacities to implement the PBCs. The manual of procedures will be drafted and will be approved by the Comité de Pilotage before effectiveness. Close policy dialogue will be carried out.
59
will jeopardize the implementation of the reform.
By Effectiveness, the management team of the ISEP is functional and an international school is contracted to provide twining technical assistance.
Overall Risk Rating at Preparation
Overall Risk Rating During Implementation
Comments
M-I High
The Government during preparation has been committed to reforms, and has met appraisal and negotiation covenants. Given the upcoming elections, the past record of implementing reforms and the ambitiousness of the reforms and uncertainties on quality of the staffing of the GDHE, it was decided to rate the implementation as High
60
Annex 5: Implementation Support Plan
Strategy and approach for the Implementation Support:
1. The implementation support strategy is based on the project objective, risks, and implementation
arrangement. This implementation is based on: (i) a close implementation supported by a country-based
task team; and (ii) semi-annual and annual reviews, and (iii) technical support missions.
2. Close implementation support: The task team, including the TTL, the procurement and
financial management specialists, is based in the country. It will provide a close and regular monitoring of
the implementation of the project and will handle a regular policy dialogue to detect and fix problems as
they emerge. Monthly meetings will be organized with the project team and the MOHESR to monitor the
progress towards achieving the project development objective.
3. Semi-annual and annual reviews: Twice a year, in May and November of each year, the task
team and the Government will organize a joint-review meeting to assess the progress made so far, identify
the difficulties in the implementation of the project and agree on the measures to overcome them. The
annual review will specifically assess PBC progress, using the annual external evaluation to determine the
subsequent year‟s allocation
4. Technical support missions: Technical support missions will be carried out in specific areas
where international expertise is needed to guarantee the quality of results or reinforce the technical
capacities at the national level. These missions will be, but not limited, to the following fields: ICT
development, architecture design and construction supervision; implementation of the quality assurance
mechanisms; and implementation of the performance-based contracts; procurement and financial
management.
Implementation Support Plan
5. As already mentioned, the most important part of the World Bank task team is based in the
country and will provide a regular and intensive implementation support.
Technical inputs: The team will need technical inputs to (i) review and discuss the first
performance-based contracts; (ii) support the development of the ICT network; and (iii)
the design and construction of infrastructure; and (iv) carrying out assessments of
university management systems for the mid-term review .
Fiduciary requirements and inputs
61
FM Implementation Support Plan
Based on the outcome of the FM risk assessment, the
following implementation support plan is proposed. The
objective of the implementation support plan is to ensure
the project maintains a satisfactory financial management
system throughout the project‟s life.FM Activity
Frequency
Desk reviews
Interim financial reports review Quarterly
Audit report review of the program 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 Semi-annual for MoHESR
(Implementation Support
Mission)
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
and when needed.
6. Procurement: A seasoned local procurement specialist will be hired to provide training and
coaching to project implementation agencies not familiar with World Bank procedures, notably the five
universities.
7. Safeguards: Environment and social specialists‟ intervention will be required to supervise the
adequate consideration of safeguards issues during project implementation.
8. The main focus in terms of support during project implementation:
Time Focus Skills Needed Resource
Estimate
SWs
Partner
Role
First twelve
months
Implementation of the PBC
Assessment of university
management capacities
Implementation of the NQAA
Higher education specialist
Procurement
FM specialist
Senior management
specialist
Higher education specialist
2
2
1
2
4
62
Development and implementation
of the MIS
Architectural studies review
Team Leadership
M&E/ICT specialist
Architect
TTL
4
4
14
12-48 months Implementation of the PBC
Implementation of the NQAA
Development and implementation
of the MIS
Supervision of works
Team Leadership
Higher education specialist
Procurement
FM specialist
Higher education specialist
M&E/ICT specialist
Architect
Social
Environment
TTL
2
2
1
2
4
4
1
1
14
Other
Skills Mix Required
Skills Needed Number of Staff
Weeks
Number of Trips Comments
Team Leader 14 SWs annually Country office-based
Higher education specialist 4 SWs annually Country office based
Architect 4 SW 2 trips annually Consultant
Procurement 6 SWs annually Country Office-based
Financial management Specialist 6 SWs annually Country office- based
ICT specialist
Environment specialist 2 SW annually 1 trip annually HQ based
Social Specialist 2 SWs annually Country office-based
63
Annex 6: Economic and Financial Analysis
1. This annex presents the economic rationale for the proposed IDA investment in tertiary education
and assesses its financial implications. It provides a brief overview of the economic and employment
contexts particularly as they relate to the demand for and supply of tertiary education graduates in
Senegal, the expected rates of return on the investment and the fiscal impact of the Government‟s policies
and of the Project.
A. Economic and Employment Context
2. The Senegalese economy has considerable growth potential. Over the past decade, episodes of
low growth notwithstanding,16
GDP has grown at an average rate of 4.1 percent a year and has nearly
doubled in size from CFAF 3.3 trillion in 2000 to CFAF 6.4 billion in 2010 (purchasing power parity
US$13.2 billion and US$23.8 billion).17
Although broad-based, growth in domestic output was led by the
tertiary (service) sector which grew at an annual rate of 6.5 percent, and by a dynamic
telecommunications sector in particular. Today, Senegal has the most competitive telecom sector in the
WAEMU region (République du Sénégal 2009). Further, according to the World Economic Indicators of
competitiveness, Senegal ranks among the top African countries in terms of innovation.18
The primary
and secondary sectors have been relatively less productive, but nevertheless still registered positive
annual growth rates of 3.5 and 1.3 percent over the past decade, respectively.
3. The relatively high and sustained level of growth is attributable to improvements in the business
climate drawn principally from an extended period of prudent macro-economic management, increased
public investment in infrastructure to facilitate transport and boost exports (notably in the road, port and
aviation sectors), and increased resources for investment from remittances and savings which underwrote
a sustained increase in building construction.
4. The sustained upward trend in growth resulted in both higher job creation in the modern sector
and a decline in the poverty rate. During 2000-2003 when economic growth was at its peak, the annual
rate of job growth in the modern sector was over double the annual performance of any year during the
previous decade.19
The fraction of the population falling below the poverty line dropped from 57 percent
in 2000 to 51 percent in 2005. Today, with a per capita income of about US$1,000 (US$1,800 in
purchasing power parity), Senegal is at the border of the World Bank‟s classification of a low-income
country.
5. Notwithstanding these achievements and despite important competitive advantages, notably
proximity to international markets and a history of peaceful democratic transitions, economic growth has
been lower than the average for Sub-Saharan Africa and is insufficient to boost standards of living to
levels found in emerging economies.
6. Analyses of the performance of the Senegalese economy, as well as comparative indicators of
global competitiveness, show that the Senegalese economy remains largely factor driven and has yet to
16
The downturns are attributed primarily to external shocks, notably to low rainfall in an agricultural sector that is largely
dependent on the elements, the international financial crises, and more recently to rising international oil and food prices. 17
International Monetary Fund, World Economic Indicators on line, January 2011. 18
The high rating on innovation is due to a small number of capital intensive, internationally competitive large enterprises.
World Economic Forum, 2010. The Global Competitiveness Report 2010-2011. 19
World Bank 2010. Senegal Higher Education Public Expenditure Review, draft.
64
make the transition to an economy based on greater efficiency and higher levels of productivity.20
Recent
studies point to several constraints to faster growth: (a) a small formal sector; (b) little diversity in the
economy with economic activities in the formal sector concentrated in a narrow range of industries and
exports concentrated in the regional market; (c) inadequate infrastructure, particularly utilities; and (d)
low labor productivity and low levels of enterprise capitalization.
7. Employment. The majority of the working population works in the informal sector (94 percent),
is self-employed (63 percent), and is engaged in part-time or seasonal employment and in unpaid work
(60 percent). Apart from a small number of highly
competitive export-oriented enterprises, the economy is
dominated by significantly less productive and less
competitive micro, small and medium sized enterprises
(SMEs) which employ the majority of formal and informal
sector workers. SMEs face a variety of constraints
including access to capital, low technological
sophistication, weak labor skills and poor integration
within supply and distribution chains. The result is that
whereas the primary sector employs slightly over half the
population, it contributes only 16 percent to GDP
compared with the tertiary sector which employs one-third
of the working population but represents 65 percent of
GDP (Figure 1).
8. Strategy for Accelerated Growth. In 2008, as a follow on to the Government‟s Poverty Reduction
Strategy and drawing on extensive analyses of the economy, business climate and the experiences of
emerging economies, the Government of Senegal developed a Accelerated Growth Strategy , Stratégie de
la Croissance Accélérée, (AGS). The AGS aims to boost economic growth to seven percent a year and
impel Senegal into the category of an emerging economy. It has two main components -- improving the
business climate, and focusing incentives and public investment in five key economic sectors that have
the potential for higher value added, broad-based employment creation and boosting exports: Agriculture
and Agro-industries, Fisheries and Aqua-culture, Information and Communication Technology (ICT)
including business process outsourcing, Clothing manufacturing, and Tourism, Culture and Arts.
Human Resource Development, particularly at level of professional and university education, forms a
central part of the strategy to improve the business climate and boost productivity.21
The Strategy calls on
institutions of higher learning to produce a labor force with know-how and a sense of innovation and with
skills that are in demand in the economy. More specifically, it calls for:
Greater responsiveness of education establishments to the qualifications and competences needed
by enterprises,
Creation of university colleges that offer quality short-term degree programs,
Greater Collaboration between teaching and research institutions and enterprises,
Greater ICT penetration, and
Better and expanded university programs in enterprise development and entrepreneurship.
20
World Economic Forum, 2010. The Global Competitiveness Report 2010-2011; Republique du Senegal, 2009. Strategie de la
Croissance Accelere; World Bank, 2007. Country Economic Memorandum: Looking for Work . 21
According to the World Economic Forum indicators of competitiveness, Senegal lies in the bottom 20 percent of countries
world-wide in the quality of its human capital stock. Studies of the investment climate also showed that 60 percent of the most
productive enterprises reported the availability of human resources to be a major constraint to their businesses.
Figure 1. Economic Sector Contribution
to GDP and Employment
65
B. Higher Education
9. Historical Context. The end of the 1980s and early 1990s in Senegal was a period characterized
by declining per capita income, stagnant public revenue, rising unemployment, structural adjustment
programs and adversarial relations between labor and Government.
10. It was also a tumultuous time for the Université Cheik Anta Diop (UCAD), the only public
university of note at the time. Policies concerning universal access and generous public subsidies22
combined with significant financial losses in the provision of student services23
had stretched public
resources24
and left the UCAD campus overcrowded and in disrepair. By 1992, UCAD‟s central library
had not replenished books in a decade. Laboratory equipment was inadequate and outdated. Classrooms
were bulging at the seams. And as enrolment outpaced the growth in academic resources, the faculty
balance began to shift in favor of assistants.25
Performance indicators were poor. Internal efficiency was
notoriously low with only an estimated 8 percent of students completing a first degree ( licence) on time,
an outcome facilitated by a policy of unregulated repetition. The weak relevance of the programs offered
in relation to employment opportunities was also considered a main cause of rising unemployment among
workers with higher education in the labor market.26
The university campus was also embroiled in the
adversarial relationships between labor and government that were prevalent at the time. Increased
politicization of students on campus supported by political parties, combined with activism of the
university teachers unions to improve the benefits of their members, resulted in successive strikes and
repeated années blanches.27
11. Within this context, the main issues at the center of the public policy debate in the early 1990s
were calming persistent unrest on the UCAD campus and improving the results. In April 1992, the
Senegalese authorities launched a Concertation Nationale sur l’Enseignement Supérieur (CNES) to bring
stakeholders together to find solutions to these and other issues. The CNES convened over 400
participants representing stakeholder groups such as employers, students, professors and private schools
over a 14-month period. It concluded with about twenty recommendations which were to form the
foundation of university reform. Most recommendations targeted structural and governance issues at
UCAD such as overlapping programs and broadening representation on some internal governance bodies.
The CNES also recommended increased financing for research, an increase in professor teaching time
from four to six hours per week and stricter application of existing policies regarding the award of tenure
to assistants.28
12. In succeeding years, the Government of Senegal sought to implement the recommendations of the
NCES in conjunction with financing and management policies that aimed to free up resources from
student subsidies and the loss-making student services and invest them in improving the academic and
research environment. The main pillars of the policy were: (a) limiting scholarships abroad to advanced
degrees in specialized areas not offered locally, (b) contracting out food services and recovering part of
22
In 1990, it was estimated that the annual public subsidy provided to each student exceeded the annual income of a university
graduate in full-time employment in the private sector. 23
Dormitories and cafeterias all operated at a loss. 24
By 1990, tertiary education accounted for 33 percent of total the Government of Senegal expenditure on education which itself
accounted for nearly 31 percent of the total the Government of Senegal budget. 25
World Bank. 1996. Staff Appraisal Report Republic of Senegal Higher Education Project. Population and Human Resources
Operations Division, Western Africa Department, Africa Region. Report No. 15523-SE. 26
Salmi, Jamil. 1992. Revitalizing Higher Education in Senegal The Challenge of Reform. Washington DC: World Bank,
Population and Human Resources Division, Sahelian Department, Africa Region, Report No. 10466-SE, April 27. 27
An année blanche is an academic year that has not been completed by a final exam necessitating a repetition of the year by all
students. 28
According to the prevailing loi no 81-59 du 9 novembre 1981 portant statut du personnel enseignant des universités, assistants
may be tenured only upon completion of a doctoral degree. However, the policy was increasingly ignored.
66
the cost, (c) controlling the negative impact of universal access by allowing universities to accept only the
number of students which they have the capacity to teach, and (d) simultaneously open up access and
promote a greater diversity of program options by promoting private provision of higher education while
planning for a more diversified and expanded public sector both programmatically and geographically.
13. From 1993-1999, UCAD academic and student service infrastructure improved considerably.
With support from the World Bank, a new library was built providing greater access to teaching and
research materials. Classrooms, laboratories and dormitories were renovated and refurbished. Funds
were made available for research on a competitive basis. An approach to evaluate university performance
-- through external accreditation or internal quality review -- was also to be developed.
14. Although these accomplishments significantly improved the teaching and learning environment at
UCAD and UGB, they were short lived and indicators tied to UCAD academic management and
effectiveness such as student repetition, program diversification and updating, and greater research output
made little headway. Further, university teacher unions continued to object to an increase in teaching
hours in the absence of additional compensation as well as to the establishment of a research fund which
the unions perceived as jeopardizing acquired entitlements (droits acquis) specified in the prevailing law
of 1981 which includes an entitlement to yearly overseas travel for research purposes.
15. Moving into the 21st century, the economic and political landscape had evolved in a number of
important respects that called renewed attention to higher education. First, private higher education had
grown considerably. Second, since the 1994 devaluation of the FCFA, the economy had been growing at
a sustained real rate of 5 percent a year while enhanced revenue mobilization further boosted public
resources. Third, the elections in 2000 brought a new administration which re-introduced universal access
to higher education and scholarships for all. Many union activists were absorbed within, and became
advisors to, the new administration. Professor salaries rose significantly so that unions and their members
were no longer singularly focused on their pockets, as one former union leader put it. A strong focus was
placed on establishing more public universities – 13 in all.
16. Access and Coverage. For the purposes of this analysis and the Project, the higher education
sector is defined as including the existing five public universities and more than 50 private tertiary
institutions that are recognized by the Ministry of Higher Education. In 2010, an estimated 98,000
students were enrolled in these institutions, with a private market share of 37 percent.
67
17. Throughout the world, the demand for higher education has been on a steep upward trend over
the past two decades. Many observers attribute this to a greater demand for higher levels of education and
skills that are required to compete for well-paying jobs in an increasingly technological, knowledge-based
and innovation-driven global economy. 29
Consistent with this global pattern, enrolment in higher
education in Senegal has trended strongly upward, most particularly over the past decade. Since 2000,
university enrolments have been growing at nearly 11 percent a year. Between 2000-2010, student
numbers more than doubled – increasing from under 40,000 to 98,000 (Table 1). The rapid growth was
facilitated by several factors -- expansion and diversification of the private university sector which
substantially outpaced the growth of enrolment in public institutions, stronger economic growth which
enabled more families to afford
private education and enabled
government to spend more,
relatively good labor market
outcomes, and particularly
public policies that guaranteed
access for all bacheliers and
provided generous student
subsidies.
By 2010, the rising
participation in tertiary
education had boosted Senegal
to among the top five countries
in Sub-Saharan Africa in terms
of enrolment as a share of the
20-24 year olds and per 100,000
people. Nevertheless, this level of participation falls significantly below the participation rates achieved in
emerging economies such as Mauritius, India and China and is only one-third the coverage achieved in
middle-income countries. 30
18. Main Issues: The main issues in the sector are less about quantity – numbers of students or
resources invested -- than they are about the results obtained from the public investment in universities
and the students who attend them.
19. Expenditure Priorities. The Government of Senegal has historically invested a large share of
public resources in education generally, and in higher education in particular. Over the past decade, the
the Government of Senegal has allocated an average of 32 percent of the public recurrent budget to
education (more than any other African country), and 24 percent of that to tertiary education. In 2010,
public expenditure on universities captured 7.8 percent of total public recurrent expenditure representing
1.2 percent of GDP compared with a Sub-Saharan average of 0.6 percent and an OECD average of 1.0
percent.
29
World Bank (2009), Accelerating Catch-up Tertiary Education for Growth in Sub-Saharan Africa. World Bank (2009),
Financing Tertiary Education in Africa. World Bank (2002), Constructing Knowledge Societies: New Challenges for Tertiary
Education. Woodhall, Maureen (2003) in African Higher Education: An International Reference Handbook. Eds. Damtew
Teferra and Philip Altbach, Indiana University Press. OECD (2006), Higher Education: Quality, Equity and Efficiency.
30
In Senegal, higher education enrolment represents 7.9 of the population aged 20-24 which is higher than the Sub-Saharan
average of 5 percent but falls significantly below the average of 23 percent among middle-income economies and nearly 70
percent in high-income countries.
Table 1. Higher Education Enrolment, 2005-10
2005 2006 2007 2008 2009 2010
Etudiants du Supérieur
64,4
95
71,7
37
82,3
84
91,32
0
97,7
13
97,9
62
Distribution (%): 100 100 100 100 100 100
Privé 26.9 26.3 25.5 25.5 32.2 37.3
UCAD 67.9 68.4 67.8 65.8 57.9 52.6
UGB 5.2 5.3 5.4 5.1 4.5 4.6
Bambey, Thiès,
Ziguinchor 0.0 0.0 1.3 3.5 5.3 5.5
Gross Enrolment Ratio 6.0 6.5 7.2 7.8 8.1 7.9
Enrolment per 100,000
population 583 632 707 763 795 777
68
20. The relatively high level of public financing has not, however, resulted in comparatively better
results. The comparatively high level of expenditure in Senegal is due to both significantly higher
salaries of teaching staff relative to national income31
and significantly higher expenditure on student
subsidies. Owing to Government
commitments to provide all bacheliers with a
place in a public university and to provide all
students with scholarships, student subsidy
expenditure grew rapidly crowding out
expenditure on the core functions of the
universities while high teacher salaries limited
the recruitment of staff to accommodate the
increasing student numbers. Since 2005, on
average, 61 percent of total public expenditure
on tertiary education has been allocated to
student subsidies and only 38 percent to the
core university functions of teaching and
research. As shown in Figure 2, for 12 Sub-
Saharan countries for which data are
available, Senegal ranks the second lowest in
the priority it gives to academic expenditure
and falls significantly below the average for
OECD countries.
21. External Efficiency. The ability of
the labor market to absorb a growing labor
force with tertiary education depends
importantly not only on economic and job growth but also on the type of skills made available to
underpin growth. Although the unemployment rate among the labor force with some higher education
(estimated at 8 percent in 2006) is significantly lower than for similar individuals with less education, it is
not negligible, and a significant share of enterprises report skill shortages as an impediment to their
business.32
22. Further, recent trends in university enrolment and employment opportunities suggest a widening
of the gap between skills that are in growing demand and the education provided by public universities.
Supply chain analyses of Senegal‟s growth sectors projects a continued strong demand for technical,
managerial and innovative skills in engineering, agro-industry, transportation, logistics, teaching, health
care, ICT, marketing, entrepreneurship and finance, programs which are in short supply in universities. In
contrast, in public universities, enrolment in Arts and Human sciences has boomed while the share of
students enrolled in Sciences, Technology and Medicine combined has fallen from 35 percent in 1991 to
only 25 percent in 2008. (See Figure 3. Figure 4 compares Senegal with the average for OECD and Sub-
Saharan countries.) At the same time, the demand among students for further education in medicine,
sciences, and technology exceeds the places available.
31
Professor salaries are competitive with those in developed economies. On the domestic market, a starting assist ant professor
earns 3.3 times more than an individual with a similar level of qualification working in formal sector. The salary represents 22
times GDP per capita. Starting full professors earn substantially more. 32
According to the 2003 World Bank Investment Climate survey, 18 percent of the manufacturing enterprises cited a lack of
labor skills as an impediment to their business. In the 2008 survey, 60 percent of the largest and most productive enterprises
reported inadequate skills as a major impediment to their productivity.
Figure 2. Government Expenditure on Academic
and Social Functions (%)
Sources: African countries–World Bank, Financing
Tertiary Education; Senegal--Bank staff calculations;
OECD countries – 2009 Education at a Glance.
69
23. University Conditions and Internal
Efficiency. Although spending on tertiary has
remained high and certain universities and Faculties
maintain acceptable standards, learning conditions
have deteriorated for the majority of students and
university output has sunk. At UCAD, which
accounted for two-thirds of public enrolment in
2008, inadequate management and financing of the
large increase in enrolment resulted in severe
overcrowding of all facilities posing risks to
academic results as well as to students‟ security and
their overall well-being, particularly women.
Various coping strategies are used but they cannot
beat the odds. Students cope with a lack of seats by
sitting through unrelated lectures in the same hall to
hold a seat for their lecture that will follow.
Multiple students share dormitory rooms and they
queue for hours for a shower and breakfast.
Professors and universities cope with tactics
ranging from using technology to link multiple
lecture halls to hiring large numbers of assistants on
an hourly basis to supervise “travaux diriges”.
24. The overall result has been massive
repetition and drop-out throughout undergraduate
education and a massive cost to the public. Over
the past several years at UCAD, on average, about
one-third of undergraduate students repeated, one-
third dropped out, and one-third were promoted to
the next year. Less than 30 percent of all entering students completed a three year course of study on
time. Overall, students at UCAD spend 75 percent more time at the university than the theoretical
duration of the program. The cost to the public is considerable. Over the period 2005-2010, the
Government of Senegal invested an average of FCFA 7.0 million (or 15 times per capita income) to
produce one graduate relative to FCFA 2.8 million that would have cost if students completed their
programs on time.
25. The Government is keenly aware that a continuation of current policies and practices is
financially unsustainable and will result in growing deficit spending and a further deterioration of the
learning environment and of the quality of education provided in public universities. In view of the
current crisis, the Government of Senegal has begun implementation of the following measures: (a)
raising fees from CFAF 5,000 to CFAF 10,000 per student to increase revenues, and (b) capping
scholarship spending at CFAF 29 billion in the medium term to contain the rising fiscal burden of student
subsidies.
C. Economic Analysis of the Project
26. The project development objective is to enhance the efficiency and quality of the higher
education system and the accountability of higher education institutions (HEI)by supporting the
implementation of measures that aim to: (a) improve management and governance, (b) provide incentives
Figure 3. Enrolment in Public Universities
by Field of Study, 1991-2008
Figure 4. Enrolment in Public Universities and
Comparators (%)
70
for institutions to improve their results, and (c) increase the availability of shorter -term professional
degree programs with strong links to the labor market.
27. The management and governance improvements take the form of new institutions (GDHE,
National Quality Assurance Authority, and University Boards) and data systems. The incentives for
improvement are embodied in the performance-based contract which will provide resources to
universities based on medium-term strategic plans and on targets and strategies to improve results,
particularly student flow through (lower repetition, lower dropout and higher on-time completion),
facilitating the transition of students into employment, and improving the financial management and
financial sustainability of public HEIs. Such improvements, for example, might include modernizing
content and teaching approaches, forging stronger linkages with employers, and cultivating collaboration
with the business community in areas of program and product development.
The proposed Project is expected to result in higher private and social rates of return than is currently the
case. It is difficult to quantify the entire set of benefits that are derived from the attainment of higher
education. For example, research suggests that a more educated work force is more adept at innovating
and adapting technologies, that it attracts increased investment and facilitates the accumulation of
physical capital, and that it can help low-growth countries to catch up faster. However, these positive
externalities are difficult to monetize. Therefore, a simple cost-benefit analysis below presents a picture
of the monetary benefits that can be generated from public spending on the teaching functions of
universities.
28. For the purpose of this analysis, public investment in higher education is expected to generate
benefits to the individual in the form of higher lifetime earnings relative to similar individuals with less
education. The net economic benefit to the individual consists of a higher future earnings stream
(influenced by both a higher probability of being employed and higher wages) minus the private costs
associated with obtaining the education where the private costs are defined as direct costs and foregone
earnings. Direct costs are based on estimates of tuition fees and living costs. Forgone earnings are
estimated as the average annual earnings of individuals who entered the labor force after secondary
school. The reforms supported by the project are expected to both lower the average private cost through
higher on-time completion (thus fewer years of foregone income and direct outlays) and increase the
direct costs for students, but the latter – a marginal increase of FCFA 5,000 -- is negligible.
29. To estimate the private rate of return, we use the results of the most recent rate of return analysis
which was based on the most recent labor market data from the period 2003-2006. Due to an absence of
comparable time series data, we have no basis on which to project employment or wage growth, so we
assume that the significantly higher probability of employment of tertiary graduates relative to those with
secondary education found in 2006 and the wage differential will continue in the future although this is
likely to underestimate the productivity gains that higher education reforms are expected to engender.
Thus, the estimate can be considered a minimum.
30. For the social rate of return, we use the same calculations as the private rate of return but with
Government costs included. Government costs are represented as the public recurrent expenditure per
student studying in a public university summed over a particular duration of time.
Studies in Senegal have shown that individuals who attend higher education garner a substantial premium
in the labor market. Over the period 2003-2007, university graduates had lower unemployment rates and
higher wage differentials than all other categories of workers. Unemployment among individuals with a
university education averaged 8 percent compared with an unemployment rate of 17 and 20 percent for
individuals with a primary or secondary education, respectively. Mean wage rates were also much higher.
71
Wages increased by about 10 percent for each level of education with the exception of tertiary education
where the mean wage rate was double that for general secondary education.33
Based on these data, Table 2 shows the estimated private and social rates of return to tertiary education in
Senegal based on: (a) a case of no reform where students spend on average 75 percent more time to
complete a three year degree, and (b) where students complete in the normal time.
For both secondary general education and higher education, taking into account foregone earnings and
private expenditure, the individual‟s investment in
education pays off. The private internal rate of return
to the investment is well above the opportunity cost of
capital, 34
and is higher for tertiary graduates (9.6
percent) relative to secondary school graduates (7.3
percent). In both cases, a decline in private
expenditure and foregone earnings due to on time
progression significantly boosts the private rate of
return. For tertiary graduates, the rate of return
reaches nearly 17 percent, double the return to
secondary education.35
The return to the public investment is, however,
substantially lower and barely above the opportunity
cost of capital due to the high level of inefficiency
within educational institutions and social subsidies. If
university students spent one year less working
towards their degree, the social return increases substantially making public investment in tertiary
education significantly more attractive.
Financial Analysis
In this analysis the project investments are placed within the overall context of the Government policies
and medium term plans for tertiary education. The analysis assesses the costs, financing gap and financial
sustainability of key policy decisions and plans set by Government. In addition to policies to cap
scholarship expenditure and raise fees, the Government‟s strategic plan for tertiary education also
includes an enlargement of the public university network to accommodate additional students and ease the
overcrowding at UCAD. Expansion plans are geared towards accommodating a progressive increase in
the student population to 80,000. The analysis also assesses the impact of the gains in internal efficiency
due to improved student flow-through that quality improvements are expected to engender.
RECURRENT COSTS
The analysis shows that the marginal recurrent costs generated by the project‟s investments are
sustainable. By investing in new infrastructure, the project will increase the total maintenance costs of the
33
World Bank (2009). Looking for Work; Saly (2010). PER analysis; World Bank (2010). Tertiary Public
Expenditure Review. 34
The current discount rate is 4.75 percent and the deposit interest rate is 3.5 percent. 35
Note that these estimates use an average per student private cost that includes students attending private
institutions and paying much higher fees. For graduates of public universities, the private rate of return would most
likely be substantially higher.
Table 2. Private and Social Rates of Return
Private
Rate of
Return
Social
Rate of
return
Base Case No Reform
Secondaire
general 7.3% 5.8%
Supérieur 9.6% 5.7%
With Greater Internal
Efficiency
Secondaire
general 9.7% 7.7%
Supérieur 12.6% 9.9%
Source: World Bank staff estimates based on
Saly 2010.
72
system. The governance reforms will also generate additional management costs relative to what the
Government of Senegal has been spending on a small Ministry. Both of these costs have been factored
into the projections of recurrent costs. Their marginal impact is negligible. Over time, it is entirely
feasible for the Government of Senegal and the universities to assume the additional recurrent costs
generated by the project.
To assess the recurrent costs and savings of these policies and targets, a financial simulation model was
developed. The analysis below summarizes the results of four main scenarios. The assumptions and final
results are attached as an Annex. Across all scenarios, the following assumptions are kept constant: (a)
recurrent resources available from Government remain at their current share of government recurrent
expenditure (24.7 percent); (b) university recurrent operating and pedagogical expenditure per student
increases over the medium-term by about 50 percent;36
(c) 50 percent of university revenue from
“Fonction de Service” is re-invested in the university; (d) scholarship spending is capped at FCFA 29
billion and the “savings” are allocated to university expenditure, and (e) the the Government of Senegal
assumes all the estimated cost of student subsidies and allocates the remainder of the projected budget
envelope to core university operations. No other improvements to the learning environment are assumed,
such as achieving lower student: professor ratios or increasing the share of professors in Rang A.
Key Results of the estimates are shown in Table 3. They point to the following conclusions:
Scenario A: A policy of access for all to undergraduate education is inconsistent with both the planned
size of the public university system and with resource availability, even with a cap on scholarship
expenditure and higher student fees. The base case scenario (Scenario A) shows that student numbers
will far exceed the planned capacity of 80,000 and deficits in university recurrent expenditure would
average US$ 23 million a year over the next five years, and reach UD$36.7 million in 2016.37
Further,
since this level of capacity is not being planned for, severe overcrowding would be inevitable.
Scenarios B and C: Although improved internal efficiency through lower repetition, lower drop out and
the creation of the ISEPS offering shorter-term programs will release additional places, the impact would
be far too small relative to the projected intake under a policy of liberal access largely because lower
drop-out rates cancel out the positive impact of reduced repetition. Scenario B shows that a significant
number of places can be released if the average rate of repetition rate were cut from 33 percent to 15
percent over a five-year period. In practical terms, this means a dramatic cut in repetition at UCAD and
no deterioration in the average repetition rates in the other universities as they expand. Although total
enrolment in public universities would fall significantly, the deficit in recurrent resources would still be
high, averaging about US$18 million a year, rising to US$26 million in 2016.
Desired improvements in completion rates, however, drive student enrolment and costs back up as larger
numbers of students are retained in the system. Scenario C shows the result if the drop-out rate were cut
in half from 20 to 10 percent. The resulting enrolment increase more than offsets the gains from reduced
repetition. The deficit rises to an estimated US$32 million a year.
Scenario D: The only measure that can accommodate the planned size of the university system and
improve its financial sustainability given the projected level of resource availability from Government
36
Operational expenditure per student varies considerably across universities from less than FCFA 67,000 at UCAD to over
FCFA 300,000 at Bambey and Thies. The increase in the average per student expenditure only accounts for a minimum estimate
for infrastructure maintenance, not any increase in pedagogical expenditure. The expenditure will nevertheless serve to halt
further deterioration in the physical learning environment and to maintain new construction. It comparative terms, it corresponds
to the expenditure per student at UGB in 2010. 37
The alternative is for the Government of Senegal to raise the share of higher education recurrent expenditure in total
government recurrent expenditure to an estimated 8.6 percent over the next five years.
73
and university own resources is limiting intake to planned capacity of 80,000 which is an estimated
23,000 new students per year, or about 60 percent of new bacheliers. In contrast, this compares to an
intake rate of over 90 percent in 2010. If universities were to continue to accept this dominant share of
new bacheliers, forecasted intake would average about 30,000.
By matching student numbers to planned capacity, the public university system becomes financially
sustainable over time. By 2015, the Government of Senegal will be able to cover the additional costs
generated by the project and invest more in improving the quality of public education.
The allocation of public expenditure on tertiary education is also projected to become more balanced
between social and educational expenditure. Although still high, public spending on social subsidies is
projected to fall from an estimated 57 percent of total tertiary expenditure in 2011 to 44 percent in 2015
while spending on the academic functions of tertiary institutions is projected to increase accordingly --
from 43 to 56 percent of total public spending on tertiary education.
In terms of expanding the pool of skilled workers for a growing economy, by 2016 participation rates in
tertiary education are projected to rise from 7.3 to 9.4 percent of the population aged 20-24 and from
about 720 to 930 students per 100,000 inhabitants. If the same pace of growth were to continue beyond
2016, by 2020 Senegal would, at a minimum, attain the coverage rate of the average for emerging
economies today.
Table 3. Key Results and Projected Surplus (+)/Deficit (-)
2012 2013 2014 2015 2016
A: Base Case
Students in Public
Universities 68,607 74,619 81,496 88,370 95,633
Academic
Expenditure per
student 638,693 669,637 700,709 731,911 741,970
% Recurrent
expenditure on
subsidies 57.2% 53.3% 50.9% 48.6% 46.5%
Recurrent
Academic
Surplus(+)/Deficit
(-) US millions -5.7 -13.3 -21.9 -26.9 -31.4
B: A Plus Reduced
Repetition
Students in Public
Universities 68,322 73,903 80,231 86,024 91,715
Academic
Expenditure per
student 638,693 669,637 700,709 731,911 741,970
% Recurrent
expenditure on
subsidies 57.2% 53.4% 51.0% 48.8% 46.9%
Recurrent
Academic
Surplus(+)/Deficit
(-) US millions -5.2 -12.0 -19.5 -22.3 -23.7
C: B Plus Reduced Students in Public 69,350 76,939 86,016 94,746 103,368
74
Drop Out Universities
Academic
Expenditure per
student 638,693 669,637 700,709 731,911 741,970
% Recurrent
expenditure on
subsidies 57.2% 52.0% 49.2% 46.5% 44.2%
Recurrent
Academic
Surplus(+)/Deficit
(-) US millions -7.0 -17.6 -30.4 -39.3 -46.6
D: C plus Reduced
Intake to Capacity
Students in Public
Universities 67,536 71,683 75,504 77,527 78,119
Academic
Expenditure per
student 638,693 669,637 700,709 731,911 741,970
% Recurrent
expenditure on
subsidies 57.2% 53.6% 51.4% 49.6% 48.2%
Recurrent
Academic
Surplus(+)/Deficit
(-) US millions -3.8 -8.0 -10.5 -5.7 3.2
75
DEVELOPMENT AND TOTAL COSTS
There is a no financing gap of the project‟s infrastructure costs. Table 4 shows a full summary of the
projected expenditure required and IDA financing. Total development expenditure is estimated at about
US$ 166 million over the four year period 2012-2016. This amount is comprised of about US$8.1 million
for institutional development, US$43 million for performance contracts, and US$114.9 million for
construction of two ISEPs and the extension and rehabilitation of existing universities. The IDA credit
of US$102 million will finance the costs of institutional development (US$7.1 million), and the
performance contracts (US$33.0 million) leaving US$61.9 million for other development costs which are
primarily infrastructure related. IDA financing for infrastructure is sufficient to cover the cost of one
ISEP, the cost of extending the existing universities and the second tertiary institution in Dakar. Under
the assumption that Government development financing continues as a level of 1.0 percent of total capital
spending, the Government of Senegal development expenditure is projected at US$166 million over the
five-year period.
Table 4. Projected Project Cost and Financing, 2012-2016 (in US$ millions)
Costs
IDA GAP 2012 2013 2014 2015 2016 TOTAL
TOTAL
Projected GoS Resources 98.7 105.4 112.4 126.2 139.6 582.3
Projected Expenditure 86.5 120.2 157.0 157.8 162.8 684.3
Surplus(+)/Deficit (-) 12.2 -14.8 -44.6 -31.5 -23.2 -102.0 102.0 0.0
Recurrent
Projected GoS Resources 82.5 88.0 95.3 107.8 119.1 492.6
Projected Expenditure 86.3 96.0 105.8 113.5 115.9 517.5
Surplus(+)/Deficit (-) -3.8 -8.0 -10.5 -5.7 3.2 -24.9 24.9 0.0
Development
Projected GoS Resources 16.3 17.3 17.1 18.5 20.5 89.7
Projected Expenditure 0.2 24.2 51.2 44.3 46.9 166.8
o/w construction 7.4 53.8 30.7 5.8 5.8 103.5
Surplus(+)/Deficit (-) 16.0 -6.9 -34.1 -25.8 -26.4 -77.1 77.1 0.0
IDA Development Financing
Governance 7.1
Construction 61.9
76
Appendix 1 Tables: Assumptions and Projected Results
Assumptions of Government Resources for Tertiary Education
Target
2011
2012
2013
2014
2015
2016 2016
HIGHER EDUCATION
Recurrent as % of total GoS
recurrent expenditure 7.7% 7.7% 7.7% 7.7% 7.7% 7.7% 7.7%
Development as % of GoS capital
expenditure 1.0% 1.0% 1.0% 1.0% 1.0% 1.0% 1.0%
OTHER LEVELS OF
EDUCATION
Ed recurrent as % of total GoS
recurrent expenditure 24.5% 24.5% 24.5% 24.5% 24.5% 24.5% 24.5%
Ed development as % total GoS
capital expenditure 4.2% 4.2% 4.2% 4.2% 4.2% 4.2% 4.2%
TOTAL PUBLIC RESOURCES
FOR EDUCATION
Recurrent as % of total GoS
recurrent expenditure 32.2% 32.2% 32.2% 32.2% 32.2% 32.2% 32.2%
Development as % of GoS capital
expenditure 5.2% 5.2% 5.2% 5.2% 5.2% 5.2% 5.2%
77
Project Assumptions and Results (Scenario D)
2011 2012 2013 2014 2015 2016
Number of Bacheliers 29,783 31,217 34,136 37,366 40,940 44,895
New Intake to Tertiary
Education
21,278 28,470 27,705 27,837 27,803 27,564
Public HEIs
17,278 23,118 22,497 22,604 22,577 22,382
Private HEIs
4,000 5,352 5,208 5,233 5,227 5,182
New Intake as % of
Bacheliers
71.4% 91.2% 81.2% 74.5% 67.9% 61.4%
Bacheliers Admitted to Public
HEIs (% of total bacheliers)
81.2% 81.2% 81.2% 81.2% 81.2% 81.2%
Total
Students
89,818 97,338 102,975 108,361 112,027 114,343
Public HEIs
61,435 67,536 71,683 75,504 77,527 78,119
Private HEIs
28,383 29,802 31,292 32,857 34,500 36,225
% Private
32% 31% 30% 30% 31% 32%
Total Students in Undergraduate Cycle
52,439 58,346 62,296 65,914 67,731 68,111
UCAD
43,920 47,226 49,432 51,906 53,385 53,712
Other Public HEIs
8,519 11,120 12,864 14,009 14,346 14,399
Students in Master and Doctoral
Programs
8,996 9,190 9,387 9,590 9,796 10,008
Enrolment growth rate
8.4% 5.8% 5.2% 3.4% 2.1%
Public HEIs
9.9% 6.1% 5.3% 2.7% 0.8%
Private HEIs
5.0% 5.0% 5.0% 5.0% 5.0%
Repeaters in Public HEIs in first two years of
undergraduate studies 13,952 12,495 12,247 11,209 9,648 7,915
as a % of students in the first two years of
undergraduate studies 33% 27% 24% 22% 19% 16%
Drop-out rate in first two years
16% 13% 11% 10% 9%
Student: Professor Ratio
39 39 39 39 39 39
Number Professors in Public
HEIs
1,580 1,737 1,844 1,942 1,994 2,009
% Rang A
26% 26% 26% 26% 26% 26%
New (net) Professors Needed
157 107 98 52 15
Rang A
41 28 25 13 4
Rang B
116 79 73 39 11
Ratio of Students: Administrative
Staff
35 35 35 35 35 35
Administrative staff as % of total staff
53% 53% 53% 53% 53% 53%
Students per 100,000 population
a/
718 757 780 798 803 797
Gross Enrolment Ratio a/ 7.3% 7.8% 8.1% 8.2% 8.2% 8.1%
a/ Note these estimates differ from those in the text. The difference is due to population estimates. To allow
for cross-country comparisons, those in the text are UNESCO estimates. Those used here are the Government
of Senegal estimates.
78
Annex7: Team Composition
World Bank staff and consultants who worked on the project:
Name Title Unit
Atou Seck Sr Education Economist, TTL AFTED
Nathalie S. Munzberg Senior Counsel LEGAF
Wolfgang Chadab Senior Finance Officer CTRFC
Linda K. English Human Development Sector Leader AFTED
Demba Balde Senior Social development Specialist AFTCS
Almudena Mateos Merino Environment specialist AFTEN
Fatou Fall Samba Financial Management specialist AFTFM
Maimouna Mbow Fam Senior Financial Management specialist and
Cluster Leader
AFTFM
Victoria Gyllerup Senior Operations Officer AFTDE
Mamadou Mansour Mbaye Senior Procurement Specialist AFTPC
Jacques Lecuyer Consultant, Tertiary education governance AFTED
Rosemary Bellew Consultant AFTED
Astou Diaw Ba Program Assistant AFCF1
79
Annex 8: Development Policy Letter
REPUBLIC OF SENEGAL
One People – One Aim – One Faith
GENERAL POLICY LETTER
FOR THE HIGHER EDUCATION SECTOR
80
INTRODUCTION
1. The aim of this policy letter is to present the higher education policy and the strategic objectives
of the Government of Senegal. It is based on various orientation documents : Carte universitaire (2002),
Visions et Stratégie de l’Enseignement Supérieur (2004), Vers un Sénégal émergent : feuille de route de
l’Enseignement Supérieur (2008), Orientations Ministérielles et Plan d’actions prioritaires pour
l’Enseignement supérieur au Sénégal : 2010-2014 (2010). These documents clearly show that the
Government of Senegal is deeply preoccupied by the development of the Higher Education sector and
seeks to find ways to overcome the challenges it is facing and make it a more effective instrument in
Senegal‟s pursuit of a place amongst emergent nations.
2. The Senegal higher education sector has undergone considerable changes in the past decade :
three new public universities have been created outside of the capital, the university programs structure is
moving towards the European LMD system, the number of students has increased dramatically from
40 000 in 2000 to 91000 in 2008, the private sector share has increased from 12 to 26% in the same
period. In spite of these progresses, serious challenges still face higher education in Senegal : access still
has to be improved since the number of qualified candidates will continue to increase and Senegal tertiary
education student population is still far below that of emerging countries ; educational programs have to
be more diversified and more in line with the labour market needs ; quality is not yet what it should be ;
and management, both at the system and institutional level has to be more efficient.
GOVERNMENT PRIORITIES AND ORIENTATIONS
3. In this context, the Ministry of Higher Education and Research has decided to focus its actions in
the next years on the following priorities: increasing access, improving quality and making management
more efficient.
4. Concerning access, the Ministry wants to :
Increase the number of places available ;
Decentralize and diversify the higher education supply ;
Create community college type institutions ;
Insure a more controlled development of private higher education institutions ;
Decrease the student population of UCAD ;
Increase the proportion of girls in scientific careers.
5. Concerning quality, the Ministry wants to :
Increase the relevance and effectiveness of higher education with the adoption of LMD ;
Develop quality assurance in all institutions, including private ones.
6. Concerning management, the Ministry wants to :
Improve at the central as well as at the institutional level the governance and management of
Higher Education ;
Develop a long term improvement strategy ;
Create an effective monitoring and follow-up system of strategic plans and reforms.
7. The Ministry notes the importance of an adequate financing and underlines the imbalance of the
actual financial structure of higher education which devotes 65 percent to the social aspect of and only
35percent to academic affairs. In addition, the Government has decided that it will take measures to
81
improve the effectiveness of the scholarship program by: (i) capping the level of national scholarships to
CFA 29 billion as of 2011; and (ii) reducing international scholarships from CFA 9 billion in 2011; and
(iii) improving the transparency and management of scholarships, in particular by limiting the number of
years of eligibility and improving the merit basis of scholarship for graduate students. An extensive audit
of the management and allocation of scholarships will be carried out by March 31, 2012 for further
efficiency measures.
GOVERNMENT ACTION PLAN
8. With respect to each of the above priorities, an action plan has been devised. It is presented in the
next paragraphs.
Access :
9. New universities have recently been added and at least another one is planned in the region of
Dakar. As these universities come to full operation and buildings are being completed, their student intake
capacity will increase. Similarly measures are being taken to more than double the capacity of UGB in the
next few years. All together, the capacity of the university system will increase, even if part of the
projected increase in the UGB and the new universities intake capacity will serve to decrease the number
of students of UCAD.
10. The Ministry will also create a network of Institut Supérieur d’Etudes Professionnelle (ISEP) to
provide short professional programs (up to two years) in line with the labour market needs. Some of them
will be located in strategic regional centers and others in the neighbourhood of Dakar. It is envisaged that
the ISEPs will be autonomous establishments without direct links with the universities. Instead, close
links will be established with labour market: employers will be invited to participate in the design of
programs and training in industries will part of the academic activities. Setting up this new type of
institutions will provide a real and needed diversification of Higher Education.
11. The Ministry is also planning to help the institutions in the development of ICT and distance
education. It is hoped that a more intensive use of ICT will permit an easier access to higher education
resources throughout the country.
Quality :
12. Various measures have been planned to increase the quality of higher education, the most
important one being the adoption of the LMD system along the lines followed by European countries :
licence of 180 credits (3 years), followed by a Masters degree of 120 (2 years) and then the doctorate. The
Law which will legalize LMD and compel universities to adopt it should be voted soon and decrees are
being prepared. This new system will lead to better definition of programs and increased mobility of
students.
13. In order to take full advantage of the introduction of the LMD system, the Ministry is planning to
set up a quality assurance authority for the higher education system called NQAA. This authority will be
responsible for the evaluation of programs as well as institutions. It will have a leading role in the
development of quality assurance preoccupations and strategies within the institutions as well as in the
whole system. In particular, it is hoped that this authority will help universities to set up a quality
assurance cell which would act as reference and consultant for the whole institution.
14. NQSS will also be responsible for auditing private institutions before they can be allowed to offer
university education. These institutions will thereafter be submitted to the same quality assurance process
as the public institutions.
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15. Other measures are also planned. One of them is to use active professionals as teachers in
professional programs. An objective of 30 percent of courses taught by professionals in those programs
has been put forward.
Management :
16. The Ministry is aware that management has to be improved at both the system and institutional
level and various actions are planned in this direction.
At the system level, a reinforcement of the Ministry is planned. Its mission and
responsibilities will be reviewed. The status of the Direction of Higher Education will be
replaced and strengthened by a Directore General of Higher Education GDHE so as to give it
the necessary authority to develop the system.
To improve the level of coordination between public universities, it has recently been decided
to set up a Conference of Rectors chaired by the Minister. This will permit discussions on the
main issues of the universities and lead to better informed and shared decisions.
The Government is also contemplating the possibility of creating a National Council of
Higher Education (CNESUP) composed of representatives of the civil society. This body
would advise the Minister on the needs of society, particularly the labour market, and the
development of the higher education system. It will give more authority and legitimacy to the
actions of the Ministry.
As part of the strengthening of the Ministry, an efficient information system is absolutely
needed. At the moment, there are important deficiencies in the information required to
effectively monitor and guide the system. Setting up this information system, will represent
an important investment at both the Ministry and institutional level. A strategic plan will be
developed to this effect to coordinate the actions needed.
At the institutional level, important changes are planned in the management structure of the
universities. Each university will have a Board of Directors, which will its supreme authority.
Half of the Board will be composed of representatives of the civil society and the other half
will originate from within the institution. The Board will be responsible for the orientations
of the institution, strategic decisions, budgeting and so on.
To deal with academic affairs, an Academic Council will be created. This Council for the
most part composed of teachers and university personnel will advise the Rector and the
Board. Advice from the Academic Council will be necessary whenever academic issues are
being considered The Board of Directors and the Academic Council will replace the former
University Council which was, and still is in some cases, the supreme authority of the
universities. The University Council , whose members were for the most part coming from
the University , was not effective to ensure accountability because of its size and
composition.
The Rector will remain the CEO of the university and its authority over all parts of the
institution will be strengthened, particularly in the financial field, where up to this moment
can be challenged by the deans. The addition of vice-rectors is planned so as to enhance the
capacity to the Direction.
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Finally, as already mentioned, the Ministry is planning to devote part of its subvention on the
basis of a performance base contract. It is hoped that this will bring a change of culture in the
institution, as it will be held accountable for its performances. This will be true of the
institution and obviously of its components. This should lead to a major improvement in the
management of the universities.
INDICATORS
17. The following indicators have been selected to monitor progress with respect to each priority :
Access :
The number of students in higher education will rise by 10%
The intake capacity of UGB will rise to 12 000 students
2 ISEPs will be created with a minimum total capacity of 5000 students
Quality :
All programs will be offered according to the LMD system
25% of all licence programs will have been evaluated by NQAA
Repetition rates will decrease to 25%
Licence graduation rate will increase to 60% in all faculties
The average time of study to graduation for a licence will decrease from 5,2 years to 4 years
In professional programs, 30% of all courses will be taught by professionals
Practical experiences in the labour market will be offered in all professional programs
All students will be equipped with a personal computer
Management :
The GDHE, CNESUP and NQAA will be fully operational
All universities will have functional Board of Directors and Academic Council
All universities will have negotiated and implemented a performance based contract
All universities will have a fully operational management information system linked to the GDHE.
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REPUBLIQUE DU SENEGAL
Un Peuple-Un But- Une Foi
Lettre de Politique General pour le sous
secteur de l’enseignement supérieur du Sénégal
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INTRODUCTION
Cette lettre de politique a pour but de présenter la politique de l‟enseignement supérieur et les objectifs
stratégiques du Gouvernement du Sénégal. Elle prend en compte les documents d‟orientation suivants :
Carte universitaire (2002), Visions et Stratégie de l’Enseignement Supérieur (2004), Vers un Sénégal
émergent : feuille de route de l’Enseignement Supérieur (2008), Orientations Ministérielles et Plan
d’actions prioritaires pour l’Enseignement supérieur au Sénégal : 2010-2014 (2010). Ces documents
montrent de façon très claire que le Gouvernement du Sénégal est grandement préoccupé par le
développement de l‟enseignement supérieur et recherche les moyens de surmonter les défis auxquels il
doit faire face. Le Sénégal espère qu‟ainsi l‟enseignement supérieur sera un instrument qui l‟aidera plus
efficacement dans sa poursuite d‟une place parmi les nations émergentes.
L‟enseignement supérieur sénégalais a connu des changements importants au cours de la dernière
décennie : trois universités publiques ont été créées à l‟extérieur de la capitale, la structure des
programmes universitaires est en train d‟évoluer vers le système LMD en vigueur en Europe, le nombre
d‟étudiants s‟est accru fortement passant de 40 000 en 2000 à 91 000 en 2008, la proportion de ceux-ci
inscrits dans des institutions privées a augmenté de 12 à 26% durant la même période. Malgré des
progrès, l‟enseignement supérieur sénégalais doit toujours faire face à des défis importants : l‟accès doit
continuer d‟être élargi étant donné que le nombre de candidats qualifiés – bacheliers – continuera de
croitre et que la proportion de jeunes sénégalais inscrits dans des institutions d‟enseignement supérieur est
encore bien en deçà de celle des pays émergents ; les filières d‟enseignement doivent être plus diversifiées
et plus orientées vers la réponse aux besoins du marché du travail ; l‟enseignement et de la recherche
devraient être de meilleure qualité et la gestion plus efficace tant au niveau institutionnel que central.
LES ORIENTATIONS ET PRIORITÉS DU GOUVERNEMENT
Dans ce contexte, le Ministère chargé de l‟Enseignement supérieur et de la Recherche s‟est donné trois
priorités pour les prochaines années : accroitre l‟accès, augmenter la qualité de l‟enseignement et de la
recherche et rendre la gestion plus efficace.
En ce qui concerne l‟accès, le Ministère entend :
Accroitre le nombre de places disponibles ;
Décentraliser et diversifier l‟offre d‟enseignement supérieur ;
Créer des institutions d‟enseignement professionnel (ISEP) ;
Assurer un développement mieux encadré des établissements d‟enseignement supérieur privé
;
Désengorger l‟UCAD ;
Accroitre la proportion des filles dans les carrières scientifiques.
En ce qui concerne la qualité, le Ministère veut :
Accroitre la pertinence et l‟efficacité de l‟enseignement supérieur en adoptant le système
LMD ;
Développer l‟assurance qualité dans toutes les institutions publiques et privées
d‟enseignement supérieur.
En ce qui concerne la gestion, le Ministère entend :
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Améliorer la gouvernance et le management de l‟enseignement supérieur tant au plan
institutionnel que central ;
Développer une stratégie d‟amélioration à long terme ;
Créer un système efficace de suivi des plans stratégiques et des réformes.
Le Ministère note l‟importance d‟un financement adéquat de l‟enseignement supérieur et souligne le
déséquilibre de la structure actuelle de financement qui alloue 65% aux œuvres sociales et seulement 35%
aux affaires académiques. En plus, le Gouvernement a décidé de prendre les mesures d‟amélioration de
l‟efficacité de la gestion des bourses en: (i) plafonnant le montant total des bourses au niveau actuel en
2011 de 29 milliards de FCFA ; (ii) réduisant à 9 milliards de FCFA les montants des bourses payés aux
étudiants dans les universités étrangères et (iii) en améliorant la transparence et la gestion des bourses
notamment en les limitant strictement aux périodes d‟éligibilité et en renforçant l‟allocation sur une base
de mérite. Un audit complet de l‟allocation et de la gestion des bourses sera conclu avant le 31 mars 2011.
LE PLAN D’ACTION DU GOUVERNEMENT
En rapport avec les priorités précédentes, le plan d‟action suivant a été élaboré.
Accès : De nouvelles universités ont été créées récemment et une autre devrait l‟être dans la région de
Dakar. Quand ces universités auront atteint leur rythme de croisière et que les bâtiments requis auront
été construits , leur capacité d‟accueil aura augmentée. De même des mesures sont prises pour
doubler la capacité d‟accueil de l‟UGB dans les prochaines années. Pris globalement, la capacité
d‟accueil du système universitaire augmentera, même si une partie de l‟augmentation prévue dans les
nouvelles universités et à l‟UGB servira à absorber la décroissance du nombre d‟étudiants de
l‟UCAD.
Le Ministère créera aussi un nouveau type d‟institution, les Instituts Supérieurs d’Études
Professionnelle (ISEP) qui offriront des programmes professionnels courts (deux ans ou moins) en
lien avec les besoins du marché du travail. Certains seront situés dans des centres régionaux d‟intérêt
stratégique ; d‟autres dans le voisinage de Dakar. Il est prévu que les ISEPs seront des établissements
autonomes sans lien direct avec les universités. En revanche, les liens avec le marché du travail seront
étroits : les employeurs seront invités à participer à l‟élaboration des programmes et des stages en
entreprise seront prévus parmi les activités académiques. La mise en place de ce nouveau type
d‟institutions apportera une diversification réelle et nécessaire du système d‟enseignement supérieur.
Le Ministère se propose aussi d‟aider les institutions à développer les TICs et l‟enseignement à
distance. L‟intensification de l‟utilisation des TICs devrait permettre un accès plus facile aux
ressources de l‟enseignement supérieur partout dans le pays.
Qualité : Diverses mesures ont été prévues pour améliorer la qualité de l‟enseignement supérieur, la
plus importante étant l‟adoption du système LMD en s‟alignant sur le modèle mis en place en
Europe : licence de 180 crédits (3 ans), suivi du master de 120 (2 ans) et enfin du doctorat. La Loi qui
rendra officiel le système LMD et obligera les universités à s‟y conformer a été votée et promulguée
(loi n°2011-05 du 30 mars 2011) et les décrets requis sont en préparation. Ce nouveau système
amènera une meilleure définition des filières et rendra plus facile la mobilité des étudiants.
Pour tirer tout le bénéfice de l‟implantation du système LMD, le Ministère prévoit la mise en place d‟une
Autorité Nationale d‟Assurance Qualité, l‟ANAQ. Cette autorité sera responsable de l‟évaluation des
filières et des institutions. Elle aura un rôle déterminant dans le développement d‟une culture et de
stratégies d‟assurance qualité au sein des institutions comme au plan du système dans son ensemble. En
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particulier, l‟autorité aidera chacune des universités à mettre en place un dispositif interne
d‟assurance qualité, lequel servira de référence et de conseil pour l‟ensemble de l‟institution.
L‟ANAQ sera aussi responsable de l‟évaluation des établissements privés avant qu‟ils soient autorisés
à dispenser une éducation universitaire. Par la suite, ces établissements seront soumis au même
processus d‟assurance qualité que les institutions publiques.
D‟autres mesures sont aussi prévues. L‟une d‟entre elles est la prise de mesures incitatives pour
amener les institutions à avoir recours à des professionnels actifs dans l‟enseignement des filières
professionnelles. L‟objectif proposé est qu‟ au moins 30% des cours de ces filières soient enseignés
par des professionnels.
Gestion : Le Ministère est conscient que la gestion doit être améliorée au niveau du système comme
au niveau institutionnel et diverses actions sont prévues en ce sens.
Au niveau du système, il est prévu de renforcer le Ministère. Sa mission et ses responsabilités
seront révisés. Le statut de la Direction de l‟enseignement supérieur (DES) sera renforcé. Elle
deviendra une DGES, ce qui lui donnera l‟autorité nécessaire pour piloter le développement
du système d‟enseignement supérieur.
Pour améliorer la coordination entre les universités publiques, il a été décidé de mettre sur
pied la Conférence des recteurs présidée par le Ministre. Ceci permettra de tenir des
discussions sur les principaux enjeux des universités et amènera des décisions mieux
informées et mieux partagées.
Le Gouvernement envisage aussi de créer un Conseil national de l‟enseignement supérieur
(CNESUP) composé de représentants de la société civile. Cet organe donnera des avis au
Ministre de l‟Enseignement supérieur sur les besoins de la société, en particulier ceux du
marché du travail, et sur le développement du système de l‟enseignement supérieur. Ces avis
donneront plus d‟autorité et de légitimité aux actions ministérielles.
Le renforcement du Ministère passe par le développement d‟un système d‟ information
efficient. Actuellement, il y a d‟importantes lacunes dans l‟information requise pour piloter
efficacement le système. La mise en place de ce système d‟information représentera un
investissement majeur pour Ministère et les institutions. Un plan stratégique sera développé à
cette fin pour coordonner les actions requises.
Au niveau institutionnel, il est prévu d‟apporter des modifications importantes à la structure
de gestion des universités. Chaque université aura un Conseil d‟administration qu i en sera
l‟autorité suprême. La moitié du Conseil proviendra de la société civile et des professionnels
et l‟autre de l‟université. Le Conseil sera responsable des orientations de l‟institution, de ses
décisions stratégiques, de la budgétisation, etc.
Un Conseil académique sera créé dans chaque université pour traiter des affaires académiques. Pour
l‟essentiel composé d‟enseignants et d‟autres personnels de l‟Université, il aura pour mission de
conseiller le Recteur et le Conseil d‟administration. Son avis sera requis sur toute question académique.
Le Conseil d‟administration et le Conseil académique remplaceront l‟Assemblée qui était, et est encore
dans certains cas, l‟autorité suprême des universités. L‟Assemblée, dont la plupart des membres
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provenaient de l‟université, n‟était plus une instance efficace en raison de sa taille, de sa
composition et des évolutions récentes de l‟enseignement supérieur.
Le Recteur demeurera toujours le responsable et son autorité sur toutes les composantes de
l‟institution sera renforcée, en particulier dans le domaine des finances où actuellement les
doyens peuvent défier son autorité. Il est prévu de lui adjoindre des vice-recteurs, ce qui
renforcera les capacités de la Direction de l‟université.
Enfin, comme cela a déjà été mentionné, le Ministère entend verser une partie de la
subvention aux universités sur la base de contrats de performance. Cette mesure devrait
amener un changement culturel dans l‟institution, puisqu‟à l‟avenir elle sera tenue
responsable de ses performances. Il devrait en résulter une nette amélioration de la gestion
des universités.
LES INDICATEURS
Les indicateurs suivants ont été retenus pour suivre le progrès accompli au regard de chaque priorité :
Accès :
Le nombre d‟étudiants en enseignement supérieur augmentera de 10%
La capacité d‟accueil de l‟UGB sera portée à 12 000 étudiants
2 ISEPs seront créés avec une capacité d‟accueil totale d‟au moins 5 000 étudiants
Qualité :
Toutes les filières seront offertes selon le système LMD
25% des licences auront été évaluées par l‟Autorité Nationale d‟Assurance Qualité (ANAQ)
Le taux de redoublement baissera à de 25%
Le taux de réussite à la licence atteindra 60% dans toutes les facultés
Le temps moyen requis pour terminer la licence passera de 5,2 à 4 ans
Dans les filières professionnelles, 30% des cours seront enseignés par des professionnels
Des stages en milieu de travail seront offerts dans toutes les filières professionnelles
Tous les étudiants auront leur propre ordinateur personnel
Gestion :
La Direction Générale de l‟Enseignement Superieur, le Conseil national de l‟Enseignement Supérieur
(CNESUP) et l‟Autorité Nationale d‟Assurance Qualité (ANAQ) seront pleinement opérationnels
Toutes les universités auront un Conseil d‟administration et un Conseil académique fonctionnels
Toutes les universités auront négocié et mis en œuvre un contrat de performance
Toutes les universités auront en opération un système d‟information complet relié à la DGES
