Public Disclosure Authorized

The World Bank

Mali Improving Education Quality and Results for All Project (MIQRA) (P164032)

REPORT NO.: RES53577

DOCUMENT OF THE WORLD BANK

Public Disclosure Authorized

RESTRUCTURING PAPER
ON A
PROPOSED PROJECT RESTRUCTURING

OF

MALI IMPROVING EDUCATION QUALITY AND RESULTS FOR ALL PROJECT (MIQRA)
APPROVED ON FEBRUARY 23, 2021
TO
Public Disclosure Authorized

REPUBLIC OF MALI

EDUCATION

WESTERN AND CENTRAL AFRICA

Public Disclosure Authorized

Regional Vice President: Ousmane Diagana

Country Director: Clara Ana Coutinho De Sousa
Regional Director: Dena Ringold
Practice Manager/Manager: Waly Wane
Task Team Leader(s): Assane Dieng
 The World Bank
Mali Improving Education Quality and Results for All Project (MIQRA) (P164032)

I. BASIC DATA

Product Information

Project ID Financing Instrument

P164032 Investment Project Financing

Original EA Category Current EA Category

Partial Assessment (B) Partial Assessment (B)

Approval Date Current Closing Date

23-Feb-2021 30-Jun-2027

Organizations

Borrower Responsible Agency

Republic of Mali Ministry of Education

Project Development Objective (PDO)

Original PDO
The Project Development Objective is to increase learning outcomes in early primary education in targeted areas, to
promote girls' access to lower and upper secondary education in underserved areas, and to enhance the governance of
the education system.
Summary Status of Financing (US$, Millions)

Net
Ln/Cr/Tf Approval Signing Effectiveness Closing Commitment Disbursed Undisbursed

IDA-68300 23-Feb-2021 23-Mar-2021 25-Oct-2021 30-Jun-2027 40.00 0 37.89

IDA-D7730 23-Feb-2021 23-Mar-2021 25-Oct-2021 30-Jun-2027 40.00 7.01 31.90
TF-B3129 23-Feb-2021 23-Mar-2021 25-Oct-2021 03-Dec-2026 44.78 6.29 38.49
TF-B4948 23-Feb-2021 23-Mar-2021 25-Oct-2021 30-Jun-2022 6.78 .70 6.08
TF-B4949 23-Feb-2021 23-Mar-2021 25-Oct-2021 25-Oct-2022 9.14 0 9.14
 The World Bank
Mali Improving Education Quality and Results for All Project (MIQRA) (P164032)

Policy Waiver(s)

Does this restructuring trigger the need for any policy waiver(s)?
No

II. SUMMARY OF PROJECT STATUS AND PROPOSED CHANGES

A. Project Implementation Status

1. The Mali Improving Education Quality and Results for All Project (MIQRA, P164032) was approved by the World
Bank’s Board of Executive Directors on February 23, 2021 and became effective on October 25, 2021. The Project’s
development objectives (PDO) are to increase learning outcomes in early primary education in targeted areas, to
promote girls' access to lower and upper secondary education in underserved areas, and to enhance the governance
of the education system. The project is financed by the International Development Association (IDA) – with a total
allocation of US$80 million [US$40 million IDA credit (IDA-68300) and IDA grant (IDA-D7730)] and US$60.70 million
Grant from the Global Partnership for Education (GPE), (which includes three distinct grants US$44.78 million
Education Sector Program Implementation Grant (TF0B3129), US$9.14 million Regular Accelerated Funding (RAF)
TF0B4949, and US$6.78 million COVID-19 Accelerated Funding (TF0B4948). The Project was restructured in February
2021 to extend the closing date of the GPE regular accelerated trust fund (TF0B4949) from February 28, 2022 to
October 25, 2022 in order to allow an implementation period of at least 12 months from the Project effectiveness date
of October 25, 2021.

2. The Project is comprised of five Components. Implementation progress and key results achieved to date are
summarized below.

3. Component 1 – Accelerating Learning through Improved Quality. It aims to improve the quality of primary,
lower secondary and upper secondary schools by directly supporting a package of activities to enhance the inadequate
teaching and learning conditions. The component focuses on specific quality issues: (a) curriculum reform through the
development and implementation of new programs and pedagogical guides for specific grades; (b) provision of
adequate pre- and in-service teacher training; (c) development of a reliable student assessment system to monitor
progress in learning and improve education quality; (d) school-level quality improvement initiatives; and (e) the
establishment of quality standards governing secondary schools. To date, the following activities have been
completed: (a) training of 500 teachers using competencies-based approach; (b) development of skills needed for
teachers in new program created in secondary Education; (c) training of 416 mother educators (meres educatrices) to
build their capacity and improve their knowledge in early childhood education as well as several prerequisites such as
the identification of current textbook needs and terms of reference for the acquisition of textbooks. This component
partly employs a performance-based financing modality to incentivize private secondary schools’ efforts in complying
with existing quality standards. The component’s implementation is assessed as Moderately Satisfactory.

4. Component 2 – Building Stronger Pathways for Girls Education Success. It aims to respond to the unfinished
access agenda in primary and lower secondary education and address the critical challenges of the low enrollment,
transition, and retention of girls in lower and upper secondary as well as the increasing out-of-school youth.
Component 2 also seeks to address both supply- and demand-side factors, including school feeding programs in line
with the education sector’s post-crisis recovery efforts. To date, following activities have been completed: (a)
recruitment of environmental and social safeguard specialists ; (b) development of an action plan; (c) adaptation of
 The World Bank
Mali Improving Education Quality and Results for All Project (MIQRA) (P164032)

screening tools to facilitate the selection of potential construction sites; (d) selection of construction sites and
screening is ongoing; and (e) technical assistance for construction has been recruited by the Bank to support the
Cellule d’Appui a la Deconcentration et a la Decentralisation de l’Education (CADDE) and the Direction des Finances et
du Materiel (DFM) to acceler ate the start-up of renovation and construction activities. The implementation of
Component 2 is assessed as Moderately Satisfactory.

1. Component 3 – Strengthening the Governance and Resilience of the Education System. It seeks to further
improve management and supervision of education services at the grassroots level, through three main
subcomponents. (i) Subcomponent 3.1 - Improving Education Service Delivery and the Resilience of the Education
System (GPE RAF trust fund) . The objective of this subcomponent will be achieved through: (a) promoting better
school-based management including effective implementation of School Improvement Plans (SIPs), monitoring of
school activity in conflict-affected areas, training of school-based management committees and school principals, and
payment of contractual teachers’ salaries; and (b) establishing smart solutions to address school closures in conflict-
affected areas.
(ii) Subcomponent 3.2 - Supporting the Education Sector’s Response to COVID-19 (GPE COVID-19 accelerated trust
fund). This subcomponent will be implemented in the first 18 months of project implementation and will finance the
necessary COVID-19 response measures in line with the Government’s approved strategy and identified priority
actions structured around its main two pillars.
5. (iii) Subcomponent 3.3. - Improving Evidence-based Decision-making through the Use of Actionable Analytics.
This subcomponent aims to address the lack of data management both at the central and decentralized levels and
institutional capacity building at all levels, through supporting the consolidation and integration of the different
existing EMIS at the central and decentralized levels. The GPE regular accelerated funding will solely support the
expansion of the planned innovative solutions to address school closures in conflict affected areas. This subcomponent
partly employs PBCs. . There are notable delays in the execution of planned emergency activities under
Subcomponents 3.1 and 3.2 (Supporting the Education Sector’s Response to COVID-19 due partly to: (a) challenges in
the management of the agreement between the Government and UNICEF, (b) closure of the GPE COVID-19
accelerated funding (TFB4948) on June 30, 2022 and the GPE RAF (TFB4949) closing on October 25,2022. However,
with respect to learning continuity in a protective and inclusive environment, some activities have been executed: (a)
the support of NGOs, activities to develop and disseminate gender-sensitive protection messages (COVID and non-
COVID) and community mobilization and awareness to support distance education; and (b) the establishment of
listening groups at the community level continues in the field; and (c) the radios and USB keys acquired are being
distributed. As for the reopening of schools in a protective and inclusive environment, the WASH COVID-19 kits are
being delivered and will be distributed at the next school year 2022-2023. The planned capacity building activities for
targeted actors took place in the field by NGOs during school holidays as a prelude to the start of the 2022-2023
school year. Community mobilization and awareness activities to support the return of children in school and
supporting displaced children taking exams have been carried out by the Governme. The component’s implementation
is assessed as Moderately Satisfactory.

6. Component 4. Contingent Emergency Response Component (CERC) seeks to provide an immediate response to
any eligible crisis or emergency, as needed. The fund will enable the effective implementation of flexible and
adaptable measures in a situation of crisis in line with the needs of displaced populations. The Project will prepare in
advance an emergency response manual for activities to be financed under this fund and request World Bank’s no-
objection, as the first step to ensure the proper implementation of Part 4 of the Project ("CERC Part"). This manual is
expected to be completed by the end of June 2023. The implementation of Component 4 is assessed as Moderately
Satisfactory.
 The World Bank
Mali Improving Education Quality and Results for All Project (MIQRA) (P164032)

7. Component 5. Strengthening Monitoring and Evaluation (M&E) and Supporting Project Management. The
objective is to strengthen institutional capacity and M&E systems, including compliance with agreed performance-
based contracts (PBC). It will support the necessary technical assistance (TA) and capacity-building activities, carefully
selected and designed to effectively address project implementation and capacity constraints. To date, the terms of
reference for the recruitment of the agency in charge of independent verification for the PBCs have been developed
and the recruitment process is now underway. The implementation progress is assessed as Moderately Satisfactory.

8. Safeguards and Fiduciary Compliance. The following legal covenants are complied with: (a) the Project
Implementation Manual (PIM) has been prepared and adopted by the Government on October 12, 2021; (b) the
Project’s Grievance Redress Mechanism (GRM) manual has been submitted by the Government and deemed
satisfactory by the World Bank; (c) two designated bank accounts have been opened to receive project funds, and the
specimen signatures of authorized signatories were sent to the World Bank; (d) budgeted annual work plans and
procurement plans for calendar years 2021 and 2022 have been prepared and approved by the World Bank; (e) key
staff of the Project/Program Facilitating Unit (2PFU) are in place including: a coordinator, a financial management
specialist, and four thematic leads (two for quality of education, one for governance in education delivery, and one for
equitable access in education) and social and environmental safeguards. The recruitment of procurement specialist
has been delayed due to an unsuccessful bid. However, a consultant is being hired to support the Direction des
Finances et du Materiel (DFM) related to procurement issues. In addition, the recruitment of two senior accountants,
internal auditor and external auditor is expected to be completed by November 15, 2022. The first disbursement of
US$50,462.88 was successfully completed in January 2022, and subsequently the first six months disbursement
forecasts for 2022 were completed in March 2022 . To date, total project disbursements stand at 10.18%. There are no
outstanding audit reports or interim financial reports and no major irregularities have been found.

B. Rationale for Restructuring

(a) Since effectiveness, the Project experienced significant implementation delays due to: Challenges in the
management of the agreement between the Ministry of Education (MEN) and UNICEF. A special agreement between
the MEN and UNICEF, as an implementing partner with a pre-financing arrangement was signed on June 2, 2021 to
support the implementation of the two GPE trust funds (the regular accelerated funding and the COVID-19 accelerated
funding), under sub-component 3.1 (Improving Education Service Delivery and the Resilience of the Education System)
and sub-component 3.2 (Supporting the Education Sector’s Response to COVID-19). The Project experienced
challenges in the management of the agreement, as the agreement closing date was ulterior (December 31, 2022) to
both GPE trust funds (TF0B4948, TF0B4949) closing dates, respectively (June 30, 2022 for the COVID-19 accelerated TF
and February 28, 2022 for the regular accelerated TF) in the financing agreement. As a result, under the facilitation of
the World Bank Education team the MoE and UNICEF agreed on a revised convention endorsed by GPE. Especially as
part of this agreement UNICEF will no longer be in charge of schools’ infrastructure under TFB4949 and a clear
timeline for implementation of activities has been carried out in particular for school renovation and construction.

(b) Political context. The country had two military coups in August 2020 and May 2021 resulting in the suspension
of institutions and establishment of new transitional Government. Consequently, the World Bank (WB), Policy OP 7.30
was triggered twice. In addition, on January 9, 2022 the Heads of States of the Economic Community of West African
States (ECOWAS) imposed economic, trade, and movement sanctions, followed by suspension of project
disbursements by the WB on March 15, 2022. ECOWAS sanctions as well as WB disbursement suspension were lifted,
respectively on July 4, 2022 and July 18, 2022. The latest in-depth assessment was completed in September 2021 to
ensure that the WB-supported activities could continue to be implemented within the country
 The World Bank
Mali Improving Education Quality and Results for All Project (MIQRA) (P164032)

9. On September 30, 2022, the Government submitted a request for the second extension of the closing date of
the Regular accelerated funding (TFB4949) from October 25, 2022 to October 25, 2023. This second restructuring of
TFB4949 comes after GPE assessment which agreed to the extension of the closing date until October 25, 2023???
The proposed restructuring is to effectively implement the supported activities and fully disburse the funds. To date,
the original amount of US$9.14 million remains undisbursed. An action plan and implementation timeline/targets for
the activities is presented in Table 1, in the description of proposed changes section.

C. DESCRIPTION OF PROPOSED CHANGES

The proposed restructuring is to request for a second extension of closing date by 12 months, from October 25, 2022,
to October 25, 2023, as requested by the Ministry of Finance. The first 8-months extension of closing date from
February 28, 2022 to October 25, 2022 was approved on March 6, 2022. The proposed restructuring involves only a
change in closing date of Regular Accelerated Funding (RAF) TF0B4949, in order to ensure a full alignment with the
established closing date by the GPE, in their letter of October 25 2022.

III. DETAILED CHANGES

LOAN CLOSING DATE(S)

Original Revised Proposed Proposed Deadline

Ln/Cr/Tf Status Closing Closing(s) Closing for Withdrawal
Applications
IDA-68300 Effective 30-Jun-2027 25-Oct-2023 25-Feb-2024
IDA-D7730 Effective 30-Jun-2027 25-Oct-2023 25-Feb-2024
TF-B3129 Effective 03-Dec-2026 25-Oct-2023 25-Feb-2024
TF-B4948 Closed 30-Jun-2022
TF-B4949 Closed 28-Feb-2022 25-Oct-2022 25-Oct-2023 25-Feb-2024