Rwanda - Education Project

Report No. 759-RW Appraisal of an u rOpy Education Project Rwanda May 21, 1975 Education Projects Division Eastern Africa Regional Office Not for Public Use Docurnent of the Intemational Bank for Reconstruction and Developrnent. International Development Association This report was prepared for oficial use only by the Bank Group. it may not be published, quoted or cited without Bank Group authorization. The Bank Group does not accept responsibility for the accuracy or completeness of the report.  CURRENCY EQUIVALENTS US$1 RF 90.00 RF 100 = US$1.08 MEASURES 1 Kilometer (km) = 0.62 Miles 1 Hectare (ha) = 2.47 Acres 1 Square Meter (m2 10.76 Square Feet GOVERNMENT OF IWAMA FISCAL YEAR January 1 - December 31  RWANDA APPRAISAL OF AN EDUCATION PROJECT Table of Contents Page No. BASIC DATA GLOSSARY SUMMARY AND CONCLUSIONS .......................... i - iv 1. INTRODUCTION ..................................... 1 II. DEVELOPMENT AND HUMAN RESOURCES NEEDS .... ........ 2 Socio-Economic Background ........................ 2 Development Potential ............................ 3 Human Resources and Rural Development .... ........ 3 Employment in the Modern Sector .... .............. 4 III. THE EDUCATION AND TRAINING SECTOR .... ............ 4 The System and its Problems ..... ................. 4 Education Planning and Development .... ........... 5 A Phased Investment Program ..... ................. 7 IV. THE PROJECT ...................................... 8 Objectives ....................................... 8 Project Items .................................... 9 The School Financing and Construction Unit (SFCU) 9 The Printshop of the Ministry of Education ..... 10 Technical Assistance ..................... .. 11 V. PROJECT COST ESTIMATES, IMPLEMENTATION, PROCUREMENT, FINANCIAL PLAN AND DISBURSEMENTS .... ............. 12 Cost Estimates ......... ........................... 12 This report is based on the findings of a mission which visited Rwanda in August-September 1974 and included Messrs. S. Burmester, F. Gamble and D. Lewis of the Bank and Messrs. J. Auerhan (Unesco), D. Beal (FAO) and G. Naleppa (consultant). The project was further reviewed in the field by Messrs. G. Pennisi, S. Burmester and B. Veuthey in November 1974 and by Mr. G. Sinclair in April 1975.  TABLE OF CONTENTS (Cont'd) Page No. Project Implementation . . . 15 Procurement . . ..................................... 16 Financial Pl.mn .......... 17 Disbursements .... 18 VI. BENEFITS AND JUSTIFICATION .. 19 Benefits ......................................... 19 Risks involved in the project .................... 20 VII. AGREEMENTS REACHED AND RECOMMENDATION ............ 20 APPENDICES 1. The Education and Training System 2. School Building irn Rwanda ANNEXES 1, Comparative Educat.ion Indicators 2. Population of Working Age by Occupational Groups, 1970 3. Estimated Requirenments and Supply of Manpower with Education beyond Primary Level 4. Enrollments and Recurrent Expenditures of the Ministry of Education 5. Forecast of Recurrent Expenditures of the Ministry of Education and of Primary School Enrollment, 1977-1985 6. Two Alternative Projections of Primary Teacher Requirements for the Period 1973-1985 7. Summary of Estimated Project Cost 8e Project Implementation Schedule 9. Forecast of Disbursements CHARTS 1. Education Enrollments, 1973-1974 World Bank 9142 2. Structure of Education 1973-1974, and Proposed Reformed Primary Education Structure World Bank 9143 3. Structure of the Mlnistry of Education, 1974 World Bank 9161 _AP IBRD 11275R  R W A N D A BASIC DATA (Est.) 1973 General 2 Area 26,340 knm Population 4.0 million Population growth rate 3.0% p.a. E1loyment Population of working age 1.7 million of which in agriculture 93% Wage employment 49,000 Education Enrollment in primary schools 398,000 (grades 1 - 6) As percentage of 7-12 age group 52 Enrollment in junior secondary 6,400 schools (grades 7-9) As percentage of 13-15 age group 2.1 Enrollment in upper secondary schools (grades 10-13) 4,120 As percentage of 16-18 age group 1.4 Enrollment in post secondary 735 institutions Total public expenditure on 677 million RF Education (1972) As percentage of GDP (1972) 3.2% As percentage of total govern- ment expenditure (1972) 28.0%   GLOSSARY FED - Earopean Development Fund SFCU - School Financing and Constraction Unit Prefecture - Province Secteur - School District Commune - Municipality Bourgmaster - Administrative head of the coammme, appointed by the central Government   RWANDA APPRAISAL OF AN EDUCATION PROJECT SUMMARY AND CONCLUSIONS i. This report appraises an education project in Rwanda for which an IDA Credit of US$8.0 million equivalent is proposed. ii. Increasing agricultural productivity in Rwanda is an urgent necessity in view of the growing population and the scarcity of land. In this effort, the education system can play an important role by providing the required skills. At present it is ill-equipped to meet this objective. In primary education, facilities are grossly inadequate, lacking the simplest furniture and teaching materials. Workshops for the newly introduced practical subjects are non-existent. These weaknesses arise in part because the Government is not itself involved in school construction, leaving primary school building to the initiative of local groups who often have inadequate resources and expertise to construct and equip simple but functional schools. Lack of transportation prevents the primary school inspectorate from giving adequate support to teachers. The curriculum is too literary, geared to the needs of the very small numbers who enter secondary schools. Secondary and higher education are uncoordinated and often unrelated to Rwanda's manpower needs. Furthermore, the system is costly. More than one-fourth of the recurrent budget is spent on education, and an approximately equal amount is supplied by foreign assistance. iii. The Government has started tackling these problems. The draft development plan emphasizes the need to increase agricultural output through rural development schemes. A reform proposal for primary education is under consideration to make it more relevant to rural needs. The entrance age would be increased from seven years to nine or ten, so that primary school leavers, when they graduate at the age of fifteen or sixteen, would be physically developed for a productive life on the land. Teaching of practical subjects related to agriculture would be greatly expanded in grades 5 and 6, and all subjects would be taught in the local language, Kinyarwanda. The reform proposal has met with opposition and is presently being revised, although additional emphasis is already being placed on practical subjects in the primary school curriculum. Any major education investment program should await the outcome of this revision, but this should not delay a start being niade on urgently needed improvements. In particular, the existing primary school facilities are inadequate for instruction in practical subjects, and textbooks are lacking. Hence a phased approach is suggested, with the first phase concentrating on improvements in primary education, which will be of high priority whatever long-term educational strategy is adopted.  iv. These aims wouid be achieved through: (a) The developmerLt of a School Financing and Construction Unit (SFCU) responsible for construction, furnishing and equipping of aLpproximately one hundred and fifty workshops for primary sc:hools; (b) The construction, furnishing and equipping of a printshop and the provision of paper for the production and distri- bution of text:books and student guides for grades 1-6; (c) Technical assistance for: (i) project implementation (44 man-years); (i.i) educational planning aimed at establishment of revised selection/examination procedures for secondary education and rationalization of secondary and higher education i/; and (iii) evaluation of project finance mechanisms, construction methods and selection procedures for entrance into secondary education (4 man-years). v. A School Financing and Construction Unit has been established within the Ministry of Education as the central executing agency for all project items. While responsibility for construction will be maintained a-: the local level, the Un.Lt will assist these local efforts with administrat:IVe and technical advice andl the provision of some material. For the proposed project, the SFCU would procure imported building materials, furrniture and equipment as well as some local materials for the construction of workshop:s for primary schools. Local groups in the communes, represented by the bou:-g- master, would be responsible for procuring the bulk of local materials and hiring skilled and unsk:Llled labor, either directly or by employing groups cf craftsmen. The SFCU would advance the necessary funds for mobilization to these local groups and as construction proceeds the bourgmaster would presizr.t documentation for expen(ditures incurred on a monthly basis to the SFCU and Me reimbursed accordingly. The flow of funds would take place through the we'L1- established postal checlc system in which municipalities (communes) have an account. Expenditures of the SFCU would be reimbursed by the Association, through a revolving fund to be established under the direction of the SFCU, against a certificate oi- expenditures, the detailed documentation of which would not be submitted to the Association, but retained in the SFCU and av.ail- able for inspection by the Association during project supervision. The operation of this finance mechanism would be a precedent for Bank Group edlzca- tion projects and, therefore, would require careful evaluation. vi. Each workshop would have facilities to teach 40 students woodwor', metalwork, home economics and agriculture. They would be adjacent to prim.lry schools, which, if not of adequate standard, would be improved with technilal advice and assistance from the SFCU. The workshops would be built to a star.dard 1/ A request has been made to UNDP.  - iii - pattern, although the materials used would reflect ecological conditions in the country and differ somewhat from location to location. Appropriate local materials would be used in construction to the greatest extent possible and involvement of the local authorities (communes) would be encouraged. The construction methods and procedures would help establish a program of economi- cal and efficient school building, and form a basis for possible further assistance to education in Rwanda, after resolution of the issue on the reform referred to in para. iii, above. vii. Additional textbooks and student guides are urgently needed to make primary schools more effective. At present, only a limited amount of textbooks for teaching Kinyarwanda in the three first grades is available. For the other main subjects of primary education (mathematics, environmental studies, French as a foreign language and practical subjects), no textbooks are available but manuscripts are at an advanced stage of development. As Rwanda lacks printing facilities, the project would provide a printshop for the M4nistry of Education and about 700 tons of paper to produce some 2,700,000 textbooks and 1,600,000 student guides over the next six years. Textbooks and student guides would be distributed to schools by the school inspectors who are being provided with vehicles by UNICEF. viii. New selection procedures for entry into secondary education are being introduced and would need evaluation after a period of time to ensure fairness in the distribution of secondary school places. Evaluation of the performance of the SFCU with respect both to the financial mechanism and the construction procedures established, should also take place during project implementation. Four man-years of consultants' services would be provided under the Credit for evaluation purposes. ix. The main benefit expected from the proposed project would be to help improve the productivity of new entrants into rural life through appro- priate training. The construction procedures established would help increase the skills of local craftsmen through on-the-job training and the proposed financial mechanism would facilitate the channeling of funds from central to local authori ties. The SFCU is expected to become a permanent institution, managed and directed by local people, and would eventually be responsible for execution of all expansion and improvement of education facilities in Rwanda. its establishment should give the Government greater control of educational building and hence ultimately improve educational planning. F. rNeither foreign contractors nor the few capable local contractors are likely to be interested in bidding for the small, simple, and often remotely sited structures proposed, especially as their costs are compara- tively small. Therefore, normal procedures for competitive bidding are not appropriate. The communes would be responsible for procuring the bulk of local materials and providing skilled and unskilled labor, either directly or by employing groups of craftsmen (who can be found throughout Rwanda). Labor costs are low in Rwanda and are not expected to exceed US$260,000 equivalent;  - iv - materials (e.g., bricks) procured by the communes are estimated to cost US$320,000 equivalent. Self-help would be employed to prepare sites. However those locally procured building materials (e.g., cement) to be pulrchased ia bulk (US$330,000 equivalent) would be acquired by the SFCU following local competitive bidding or the solicitation of competitive offers from local suppliers. Imported building materials (US$780,000 equivalent) would be pro- cured by the SFCU following advertisemenit in the local press and in adjaceat: countries (e.g., Zaire, Kenya) since it is unlikely that contracts would be of direct interest to overseas suppliers; because of the diversity and smalL. lots of the items involved. Civil works for the SFCU offices and the prinLE,hop (US$200,000 equivalent) would be procured by competitive bidding advertiseil locally. Instructional equipment, furniture and vehicles (US$850,000) woulc. also be procured by the SFCU following advertisement in the local press anfl adjacent countries and competitive quotations from local and regional agen:. of overseas suppliers. International firms are well represented by local agents both in. Rwanda anid neighboring countries, prices are competitive and essential after sales services are available. Printing equipment and pape: contracts (US$1,300,000 equivalent) would be placed by the SFCU following international competitivre bidding in accordance with the Bank Group guidelines. xi. The total cosi: of the project is estimated at US$9.0 million equ:Lva- lent, corresponding to IJS$8.8 million net of taxes, with a foreign exchange component of US$6.2 mill.ion equivalent or 69% of the total projec.t cost. This high percentage is the result of the high proportion of imported mate:rials required and also because local materials are cheap while imported materia_s are expensive. The proposed IDA Credit of US$8.0 mi1lion equivalent would correspond to about 90% of total project costs net of taxes. The proposed project would be completed in approximately six and a half years. xii. The proposed project constitutes a suitable basis for an IDA Cre.it of US$8.0 million equivalent on standard terms to the Government of Rwanda.  I. INTRODUCTION 1.01 Rwanda's education system contains wide contrasts especially between primary and secondary education. Primary education generally takes place in inadequate facilities where basic materials, such as textbooks and furzniture, are often lacking. On the other hand, largely because of the interest shown by missionaries and external aid agencies, facilities for secondary schools are of a reasonable standard. The classroom loading of primary schools and their student-teacher ratio are highf, contrasting sharply with the under- utilization of secondary schools where the student-teacher ratio is uneconomi- cally low. Primary education, which is terminal for nearly all children, should provide courses designed to prepare school leavers for an appro- priately productive life; instead, the teaching emphasis is on preparation for entry to secondary schools where only 2% of the relevant age group are enroll.ed, and these are mainly prepared for employment in the modern sector or for further study abroad. The Government is aware of these problems and is considering reforms which would make primary education better geared to the economic and social needs of the majority of the population and would adjust secondary and higher education student output to estimated manpower needs. 1.02 Technical and financial assistance for this improvement and re- orientation of primary education towards rural life is urgently required. Rwanda's economic prospects hinge on an increase in agricultural productivity on existing land because little new land is available for development; train- ing for youth and adults in rural skills could help achieve this. The lack of a manpower survey and the large number of agencies involved in secondary and higher education have led to unplanned developments; rationalization at these levels is required before major new investments are made. 1.03 In November 1973 the Government submitted a request for Bank Group assistance for two teacher training colleges, retraining of teachers, produc- tion of textbooks for primary education and expansion of secondary education. It became clear at an early stage, however, that this request was based on inadequate planning and over-optimistic estimates of the Government's financial capacity and implementation capability. The request was discussed with a Bank/Unesco identification mission which visited Rwanda in March 1974 and further revised in A-ugust-September 1974 by a preparation-appraisal mission comtoosed of Messrs. S. Burmester and F. Gamble of the Bank and Messrs. J. A.ierhan (Unesco), D. Beal (FAO), and G. Naleppa (consultant). The mission was assisted by Mr. D. Lewis of the Bank. A mission consisting of Messrs. G. Pennisi, S. Burmester, and B. Veuthey of the Bank discussed the findings of the preparation-appraisal mis-sion with the Government in November 1974 and completed the appraisal. In April 1975, Mr. G. Sinclair of the Bank conducted further field review of the project, particularly of its implementation and architectural aspects. 1I04 The Bank missions concluded that a phased investment program in line with the availability of government financial as well as managerial and  - 2 -- administrative resources would be more appropriate to Rwanda's needs. In the first phase, emphasis s'hould be given to the needs of primary education arnd in view of the need to rationalize the existing system (para. 1.02), no ir.vest- ments should be undertaken in secondary and higher education, including te!ac her training, at this stage. Hence, the proposed project would provide facilities for teaching of practical subjects of relevance to rural life in primary C!dl- cation, establish a system of economic school construction, supp:Ly primary school textbooks and student guides, and strengthen the primary school inDpfec- torate. It would consist of: (a) The development of a School FiLnancing and Construction Unit responsible for constructing, furnishing and equipping of 150 workshops for practical subjects teaching; (b) The development of a printshop for production and distri- bution of textbooks and student guides; and (c) Technical assistance for project implementation and evaluation. II. DEVELOPMENT AND HUMAN RESOURCES NEEDS 2.01 Socio-Economic Background. R%anda is a poor, landlocked country in the heart of Africa. With GDP per capita estimated at US$60 equivalent in. 1972 and increasing at some 2% to 3% p.a., Rwanda is among the poorest cou.- tries in the world and is likely to remain so for the foreseeable future. The country is small and the unusually hilly terrain makes transportation difficult. There are t,en prefectures (provinces); 75 secteurs (school districts), and 141 comnunes (municipalities). 2.02 With a population of four million in 1973, growing at almost 3% p.a., Rwanda is overpopulated with a shortage of readily cultivable land. Ninety-seven gercent of the population is rural. The population density in 152 per km , the higlhest in Africa, and possibilities for relieving the population pressure through emigration to less populated neighboring count:^ies seem remote for ethnic and political reasons. Kinyarwanda is the national language spoken by all; urban-rural income differences exist but are smalllt than ia most developing countries; 1I and the tribal conflicts of the 195G.l appear resol]ved. The adult literacy rate is estimated at 23%, a comparati,Fr- ly high ratio for an African country as poor as Rwanda (Annex 1). 2.03 Agricultural production accourLted for 63% of GDP and 62% of expo::ts in 1972. The typical Riwandese smallholder has five surviving children for whom he attempts to provide the basic necessitles on a plot of little more than one ha. He and his wife use manual. tools for cultivation, often only a hoe. No mineral fertiliLzer is used. As a consequence, about 98% of the 1/ Average urban incomaes are twice r-ural incomes; this ratio is about filre to one in Kenya.  cultivated land is used for production of subsistence crops and unfavorable weather leads to frequent scarcities. Worldwide inflation caused the consumer price index in Kigali to rise by 27% between December 1973 and August 1974, and the prices of basic foodstuffs (bananas, beans, potatoes) have, in recent months, increased by as much as 100%. Due to bad weather in the Spring of 1974, near famine conditions exist in the northern part of the country. 2.04 Development Potential. The first Five-Year Plan (1966-70) consisted of a list of projects out of which about 60% were realized. Implementation was hampered by lack of funds and by inadequate development administration. A second Five-Year Plan (1972-76) was completed by April 1973 but was never approved due to a change of Government in July 1973. Overall guidance for planning has been lacking. Proposals from the several provincial and sectoral commissions have been far in excess of financial and managerial resources and adjustments have been difficult because clear priorities were not established. The Plan is now under revision. It is known that strong emphasis will be given to rural development. This is all the more necessary since the modern sector, even under favorable conditions, cannot absorb the ever increasing population of working age. Agricultural productivity can and should be increased. Several inputs are required to achieve this; among them are a more systematic and sustained extension effort and basic and adult training related to rural life. With no other apparent resources, Rwanda's potential for development rests with its land and people. An integrated approach to develop both to the maximum extent possible and with the minimum cost is required. Due to the extreme poverty of the country, development of the skills and knowledge of the people and their effective utilization in the national economy represent major challenges to planners and policy-makers. 2.05 Most public investment is financed by external assistance and the contribution of foreign aid to current expenditure is substantial; e.g., in the case of education about 50% of recurrent expenditures are financed by foreign aid. It seems unlikely that the country has the means to balance even its ordinary budget with domestic revenues only. 2.06 Human Resources and Rural Development. The population of working age was estimated at 1.76 million in 1970 of whom approximately 93% found their livelihood in agriculture (Annex 2). With such a large proportion -i the population employed in agriculture and taking into account the scarcity .. land, the socio-economic development of Rwanda is crucially dependent on m2hing rural people more productive. A transition from traditional agricul- tural practices to a more intensive and diversified mixed farming system should and can take place. The adoption of new cultivation techniques and practices in ch traditional sector requires improved training for both young and adult farmers. Every year roughly 110,000 young people enter the working age popu- lation. At most 6,000 of them can be absorbed into wage employment (Annex 3). The rest have to find their livelihood from the land, They are not at present equipped for this task. About 40,000 will have had a full primary education which, ho-orever, has been geared towards preparation for secondary education  - 4 a rather than rural life. Another 10,000 may have had sufficient primary educa- tion to become literate. The rest are illiterate, and cannot be expected to easily understand and adopt new techniques or improve old ones. The improvement of school programs is thus of the greatest importance. 2.07 Employment in the Modern Sector. No manpower survey has been car- ried out in Rwanda. A sample inquiry in 1970 estimated wage employment at some 49,000 people. Barnk Group staff estimates of supply and need for highier and middle level manpower (Annex 3) show that supply and need are in rough balance at least in the near future. Although specific needs, may not be met, the overall situation in middle and higher level manpower cautions ag,ainst investments in secondary, and higher education facilities at this time. 2.08 In conclusion, the stringent financial situation, the limited ad ministrative capacity of the Government and the embryonic state of plannin..; justify a cautious approach. As far as education is concerned, investments- at this stage should be directed towards improving the rural skills of the population through quality improvements in primary education. III. THE EDUCATION AND TRAINING SECTOR 3.01 The System and its Problems. The Rwandese education system (Appendix 1 and Charts 1 and 2) is marked by a strong dichotomy between th,i: primary and secondary levels. Primary school enrollments (400,000) repres'.nt 52% 1/ of the 7-12 age group; secondary school enrollment (10,500) is less than 2% of the 13-19 age group. Primary school facilities are often very poor with 45% of all ClaSsrooms consisting of a mud hut with insufficient window space and little or no furniture; secondary facilities are usually good. Primary school classes are crowded with 51 students per teacher on the average; there are l.ess than 13 secondary school students per teacher. Primary schools are often built by local parental groups and recurrent cos:s are met by the Government; secondary schools have invariably been built by missionaries or foreign aid, and about 80% of recurrent costs are met from non-government sources. 3.02 The efficiency of many primary school teachers is adversely affet:tnd by the poor teaching env,ironment. Primary teacher qualifications have ste.id- ily improved and now nearly 40% of the teachers are fully qualified by the Government7s own standards 2/; however, such teachers are paid more than tv;ize as much as underqualified teachers. Teachers' salaries absorb 97% of the i:e- current funds and teaching aids such as penc4is and paper are often lackin.; students textbooks do nct exist, except for the newly printed textbooks in Kinyarwanda for the first three grades. The first three primary grades haFle 1/ Based on the 1970 population census figures. If UN population figures are used, this percentage becomes 63%. 2/ i.e., having at least five years' secondary level education.  - only half-day schooling. 1/ Although only 6% of primary school leavers who complete the course get a secondary place, the curriculum is overly literary and geared to the needs of this minor'ty. Repetition and dropout rates are high, but are diminishing. 3.03 The secondary education system offers a multitude of programs of varying lengths and levels. Together with the developing higher education system, it has suffered from a lack of cohesion in the programs resulting from the wide diversity of the sources of foreign aid. The proportion of foreign secondary school teachers employed is high (303 out of 934), but declining. Foreign teachers outnumber Rwandese in higher education; as they are paid from abroad the Government will be called upon to meet an increasing proportion of recurrent secondary and higher education costs as more Rwandese teachers are employed; at present, the Government meets only some 20% of these costs, which are inflated by the high salaries paid to foreigners. 3.04 In addition to the general primary and secondary education system, there are a number of experimental programs at the primary and post-primary levels. The 3-year post-primary programs for girls in homecrafts and kitchen agriculture are the most important with an enrollment of about 5,000; those for boys enroll only 600 in artisan and agricultural courses. Many of these post-primary programs are well run and serve a useful function, but they cannot be replicated on a large scale because they compete with primary education for scarce recurrent funds. Complementing this formal education system is a widespread non-formal system for children and adults. More information is given in Appendix 1, para. 15, but details of the programs and the actual attendance as distinct from the registration figures are not available. 3.05 In sum the main problems of the system are (i) an over literary primary education with little practical content or relevance for the 94% of primary school leavers who do not enter secondary education; (ii) inadequate facilities in many primary schools; and (iii) an uncoordinated secondary education system. The challenge of educational development in Rwanda is to mueet these problems while not unduly increasing the already high proportion {about 25%) of government expenditures devoted to education (Annex 4). The problem areas (ii) and (iii) arise partly because the Government is not presently involved in school construction, relying on local initiatives for primary school construction and on foreign efforts at the secondary level. The recent establishment of a Government School Financing and Construction tUni'i (SFCU) is a step towards resolving these problems. 3>061 Education Planning and Development. To make the education system more responsive to the country's needs, the Ministry of Education in 1974 pTroposed a far-reaching reform of primary education, the main elements of wh{T.ih are: (i? a basic course of four years for all beginning at age nine or ten; (ii) after a selection based on aptitudes, a two-year terminal course 1/ Thase classes have only 15-1/2 hours instruction per week compared with 31 laours for the upper grades.  - 6 - for 90% of the students to prepare them for immediate employment, with ha..f the time being devoted to practical subjects related to agriculture, and a two-year pre-secondary course for the remaining 10% emphasizing French, thi:e medium of instruction in secondary schools. Quantitatively, the reform envisages an enrollment of 100% of the 10-15 year age group by 1980. Secondary education is not treated in detail in the reform proposals, but it is con;ider- ed that it should be geared to manpower requirements and needs rationalizi.Ltion. 3.07 The proposed reform has been discussed by an Education Commissiun and opposition has manifested itself to the proposals to postpone entry tt: primary schools to age nine or ten, and to select for secondary education after only four years of primary education. On the other hand, the Commis- sion agreed that practical subjects should be introduced into primary educ:a- tion as soon as possible. Consequently, since September 1974, eight hour:. per week of practical subjects are mandatory for all students in grades 5 and 6, although facilities to give this instruction are presently lacking. Also., the age of entry into primary school is being raised to eight (school year: 1975-76). Finally, the Government has requested UNDP to finance a comprel-easive technical assistance project to review the reform proposals, develop syllabi, carry out long-term educational planniag and program the implementation o.. needed improvements. It is likely that this project will start before the. end of 1975 and that a detailed action program will be formulated by 1977- 78. 3.08 At the individual school level, the Government's policies of imlprov- ing primary school facilities as means permit and of rationalizing the sylitem by the development of schools offering the full six-year course ,are evideiitly sound. While few educators would accep t that increasing the age of entry to primary schools from seven to nine oz ten is educationally desirable, the reform proposals are appropriate under the circumstances of Rwanda; in part:L- cular, the use of Kinyarwanda as the language of instruction and the great e- emphasis on practical agriculture-based subjects in the curriculum is essen-- tial if primary education is to become more responsive to needs (para. 2.06'. The Government and the Association will exchange views on further developnulnts of the educational reform with special reference to the possible expansior of practical subjects teaching (para. 3.07) during the course of project s iper- vision. For practical instruction to be effective, performance 4l n practicaj. subiects needs to be taken into account in procedures for entry into secorlary educat.ion, Withinl two wears of signing the Credit Agreement, the Governme at: will send proposed revised selection/examination procedures for entry intc secondary schools to thie Association for its comments. 3.09 Quantitatively, the achievemenit of full primary educat"ion by 198) as suggested in the proposed reform (para. 3.06) is clearly out of the que3- tion: not only would the unit costs of any reformed system be higher than those of the existing, but a recent (1974) increase in teachers' salaries  - 7 - will also have an adverse effect on the achievement of higher enrollment ratios. These increased teacher salaries have been used in compiling Annex 5, which gives two alternative enrollment projections. Alternative 2, the less likely, shows that if total public expenditures grow in real terms as foreseen in the draft development plan (7.9%) and if education continues its present share of government expenditures, then some 570,000 pupils could be enrolled by 1985 against 400,000 at present. This would represent about 60% 1/ of the estimated population aged 10-15 years, i.e., the basic education age group if the reform is accepted. This continued growth of expenditures cannot be guaranteed, and a more conservative estimate is given in Alternative 1, in which total expenditures grow by 5% annually in real terms and education's share in them is reduced to 26%. Assuming further that primary education takes only 63% of the education budget against 67% now, and that minimum reasonable provisions are made for expenditures on equipment, then only 470,000 pupils could be enrolled by 1985. This would involve an increase in primary enrollments of only 1.5% p.a., less than the rate of increase in the age group, estimated in UN projections at 3.5% p.a., but it would nevertheless reverse the recent trend in primary school enrollments, which have decreased by 5% over the last three years, due mainly to the more stringent control of the entrance age which was introduced in 1971. The teacher requirement implications of the two projections are summarized in Annex 6. 3.10 With regard to secondary and higher education, the student/teacher ratios are so low that a considerable expansion of the system could be made without substantially increasing recurrent costs if the system were rational- ized. It is likely, however, that the Government's share in recurrent costs will increase as more Rwandese are employed in teaching at these levels (para. 3.03). The needs of Rwanda for highly trained manpower are very limited and are likely to remain so (Annex 3). Rationalization of secondary and higher education will need the cooperation of external aid agencies; technical assistance is already being provided under a UNDP/ILO project started in the Spring of 1975; a comprehensive manpower survey is expected to be completed by 1977. 3.11 A Phased Investment Program. Any comprehensive investment pro- gram in education must await the final decision on the reform proposals and the preparation of a detailed program of implementation. Investments in secondary and higher level education should be made only after completion of the UNDP/ILO study of manpower needs and a rationalization of the system. A phased approach is thus needed, with the first phase concentrating on improvements in primary education which are of high priority, whatever sound long-term educational strategy is adopted by the Government. These improvements would include the development of more relevant and hence pro- ductive primary school programs, particularly for rurally oriented practical 1/ Based on UN population projections, according to which the present primary enrollment ratio is already 63%.  -8- subjects, the promotion of the use of Kinyarwanda as the medium of instvUction, the reorientation of studies to fit local traditions and needs and the establishment of effective and economical building procedures. 3.12 While the main effort will be required of the Government, bililteral and other donors wil]L. assist in these developments. A team of French experts has studied the need for practical subject teachers and the development of suitable programs bot:h in primary schools and primary teacher training colleges, As a result, the Government has decided that from September 1975, 60-80 experi- enced primary school teachers p.a. would receive a nine-month in-servicei course at the Rural Artisan Training Center at Gitarama which has operated successfully since 1970 with Frenc:h technical assistance and where almost all expatriate instructors have been replaced by qualified Rwandese. Belgium, the lar;gest aid donor, is heavily involved in secondary and higher education and is unlikely to enter the primary education field; however, in cooperation with other bilateral and multilateral agencies, Belgium is assisting the establishment and operation of a well integrated curriculum development center. 3.13 Within this framework, a Bank Group project complementing the eEforts of other donors has been formulated to assist the Government to develop its educational system. This proposed project would assist the first phase of an integrated program and help develop more relevant primary education. The second phase would be dependent on progress made in the education refo=r: proposa.Ls: a second project in the late 1970s would probably extend the assistance a.forded under the first project and possibly also include aid for primary teacher and extension agent training. In this second phase and in a possible third pliase the needs of secondary education might be considered in detail based on man- power needs and rationalization of the secondary education system (paras. 3.07 and 3.10). IV. THE PROJECT Objectives 4.01 The proposed project would help the Government in the first phase of a comprehensive approach towards improving the quality and efficiency of primary education. 4.02 The project would consist of: (a) The development of a School Financing and Construction Unit responsible for construction, furnishing and equipping of approximately 150 workshops for practical subject teaching with about 6,000 student places.  - 9 - (b) The construction, furnishing and equipping of a printshop and the provision of paper for the production and distribution of textbooks and student guides. (c) Technical assistance for: (i) project implementation (44 man- years); and (ii) evaluation of project finance mechanisms, constr-uction methods, and selection/examination procedures for secondary education (4 man-years). Project Items 4.03 The School Financing and Construction Unit (SFC1). As mentioned in para. 3.05, the Government has not been involved in school construction. Although by relying exclusively on local initiatives in primary education, scarce Governmerit development funds have been saved and community involvement has been assured, this has also led in many cases to inadequate facilities that cannot be used efficiently for ordinary instructional purposes (paras. 3.01 and 3.02), and still less for teaching practical subjects. As a means towards improved planning in school development and construction methods, a SFCU was established by Presidential decree in March 1975. 4.04 The Director of the SFCU has been appointed, and the other prin- cipal officers would be an Architect (or Civil Engineer), a Procurement Officer and an Accountant. It was agreed that all would be appointed on a full--time basis, after consultation with the Association on qualifications and terms of reference. Due to the lack of experienced local specialists, it is likely that the Architect and the Procurement Officer would have to be recruited from abroad. The Government is seeking suitable candidates through appropriate advertising; their services are included in the total project cost (10 man-years of technical assistance). In addition, 32 man-years of field staff services to supervise and provide technical advice to local craftsmen at construction sites are included under technical assistance provisions, although these services may be provided under German, French, Arierican and/or tUN programs. Should some of this external assistance be forthcominn, the savings would be used for purposes related to the project. It is also possible that some of the field staff would be recruited among nationals. The field staff would consist of eight civil engineering tech- ricians. Their appointment would be based on selection criteria and terms of referenice determined by the SFCU1 in consultation with the Association. 405 Architectural/engineering services to the communes would be pro- vided by the stafL of the SFCU including its field staff. Designs and methods of construction have been developed with a view to making the most appropriate .uLse of local materials and techniques, taking into account regional variations. The Government confirmed that it will provide counter- parts to the expatriate staff of the SFCU for training and later rep'Lacement of expatriates. The SFCU would first be accomnodated in rented facilities  10 - and later in a new building adjacent to the printshop of the Ministry o:l Education. Expenditures for rent and the cost of the new building as wt.11. as the provision of vehicles, equipment and operational expenditures fo:- the SFCU would be provided under the project. 4.06 Workshops for primary schools would provide facilities for instruction in 'simple agricultural-related woodwork, metalwork and home economics. Each commune would be provided with a workshop. Each worksho? would have room for 40 students and include a metal and woodwork shop, ai kitchen, and storage space. To ensure appropriate utilization, workshop:s would only be provided for primary schools which have at least two classIes in both grades 5 and 6, and a plot of land of about one ha on which the students would be given instruction in agricultural techniques. Eight hours of practical work in the present timetable would mean that the workshops are used for about 32 hours a week. Furthermore, the workshop would be used :-or training adults after school hours and during vacations. The schools should be of a reasonable standard. If they are not, improvements would be made with the technical assistance of the SFCU. Assurances to this effect were obtained from the Government. The 6,000 student places to be provided in the workshops would allow about one-fourth of all primary school students to receive instruction in practical subjects. The workshops would be built, to a standard pattern, aLthough the materials used would reflect the differenlt ecological conditions in the country and differ somewhat from location t location. Construction methods presently in use for primary schools and those envisaged for the workshops are described in Appendix 2. It is es.3en- tial that the workshops provide austere but adequate facilities, at minimini cost; if they can be constructed at lower cost than presently estimated,E then more workshops or primary schools would be built. The envisaged construc:tion methods and procedures should help establish a program of economic and e:-ficient school building in Rwanda, leading to widespread improvements in educatiriral and construction stanclards. 4.07 Sufficient rLumbers of practical subject teachers Lor girls are available, having been trained for the post-primary homecraft courses (p.I.ra. 3.04), but teachers of practical subjects for boys are lacking. These w,uld be selected and recruited from existing prLmary school teachers who wou',:. be given in-service courses at the Rural Artisarn Training Center at Gitaram. as depicted in para. 3.192. The Government confirmed that bilateral assistai,ca for the training of these practical subject teachers is forthcoming. 4.08 The Printshop of the Ministry of Education. Textbooks and guic.es for students and teachers in the main subjects of primary education (Kinyarwanda, mathematics, environmental studies, practical subjects and French as a foreign language) are required 'para. 3.02). A limited amoult of textbooks for teaching Kinyarwanda has been procured boy the Government  - 11 - for the three lower grades and introduced successfully in some schools. Manuscripts in Kinyarwanda have been prepared for mathematics and are at an advanced stage of development for the other subjects. It is expected that they will be completed and tested as a part of the UNDP technical assistance project (para. 3.07). However, as syllabi for practical subjects and environmental studies will be revised as experience is gained, teaching in the initial stage would be based on student guides, each of approximately 25 pages. In order to provide each primary school student with textbooks and guides and to allow for replacement during the project, a total of about 2,700,000 textbooks and 1,600,000 student guides are required. The existing Government printshop is overloaded and the few printers available in Rwanda cannot handle the production and timely distribution of such a volume of textbooks and student guides. Printing overseas would be expensive; a textbook produced abroad would cost three times as much as a textbook printed locally. Therefore, the project would provide a printshop for the Ministry of Education to be located on the same site as the SFCU which also accommodates the Belgian- assisted curriculum developaent center and the building being constructed by the UNDP to house the offices of their technical assistance project (paras. 3.07 and 3.12). Altogether, the complex would form a well-integrated educational services center which, inter alia, would promote improved co- ordination of foreign assistance to the sector (paras. 3.01 and 3.03). The project would provide buildings, furniture and equipment (e.g. two off-set machines, a paper sorting machine, two typesetting machines) for the printshop as well as about 700 tons of paper needed to produce the textbooks and student guides. Two man-years of specialist services for the operation, maintenance and repairs of the printing equipment would be provided under the technical assistance provisions of the project. 4.09 Textbooks and student guides would be delivered to the schools by the SFCU and by the district inspectors. Vehicles for the SFCU would be provided as a part of the project (para. 4.05) and vehicles for the district inspectors are being supplied under a UNICEF program aimed at strengthening the school inspectorate. The inspectors would be trained in the use of the new textbooks and student guides through seminars to be organized in the facilities of the educational services center being formed in Kigali and outlined in the previous paragraph. In turn, they would instruct the primary school teachers, particularly those less qualified, after delivering the books and during regular visits to the schools. 4.10 Technical Assistance. To assist in project implementation and rationalization of secondary education, the project would provide for expatriate specialists as follows: (a) Forty-four man-years of specialist services, including field staff, to assist in general project administration and implementation, details of which are given in paras. 4.04 and 4.08. (b) Four man-years of consultants' services for the evaluation of; (i) the new selection/examination procedures for entry into  - 12 - secondary education to be established under the reform proposals; and (ii) the finance mechanisms envisaged for thle SFCU (discussed in para. 5.13) which would be a precedent for this type of Bank Group involvement in the education sector. Hence an evaluation of the performance of the Unit with respect to both the financial mechanisms and construct.:.cn procedures should take place. These evaluations would be carried out by consultants under terms of reference reviewed by the Association. Technical assistance for educational and manpower planning, curriculum devel- opment and the formulation of revised examination/selection procedures for entry into secondary education is being provided under various multilatearal and bilateral programs (paras. 3.07, 3.10., 3.12). Should some of these programs be extended to include part of the technical assistance and/or the printing equipment to be provided under the project, primary schools wiould be upgraded or more workshops would be built in order to facilitate a more extensive introduction of practical subjects in primary education (para. 4.07). V. PROJECT C)ST ESTIMATES, IMPLEMENTATION, PROCUREMENT, FINANCIAL PLAN AND DISBURSEMENTS Cost Estimates 5.01 The proposed project is estimated to cost US$9.0 million equ:valent. The estimated costs and foreign exchange component of the various itemns of the project are given in Annex 7 and summarized below:  - 13 - Rwanda Francs US Dollars % of (millions) (millions) Base Local Foreign Total Local Foreign Total Cost 1. Civil Works, Furniture & Instructional Equip- ment for 150 Workshops 77.40 117.90 195.30 0.86 1.31 2.17 42 2. Civil Works, Printing Equipment and Paper for the Printshop of the Ministry of Education 13.50 118.80 132.30 0.15 1.32 1.47 28 3. Technical Assistance 26.10 60.30 86.40 0.29 0.67 0.96 18 4. Project Administration 15.30 20.70 36.00 0.17 0.23 0.40 8 5. Project Evaluation 5.40 12.60 18.00 0.06 0.14 0.20 4 Total Base Cost /1 before contingencies 137.70 330.30 468.00 1.53 3.67 5.20 100 5. Contingencies a) Physical Increase (11%) 18.90 31.50 50.40 0.21 0.35 0.56 b) Estimated Price Increase (56%) 97.20 194.40 291.60 1.08 2.16 3.24 Total Contengencies 116.10 225.90 342.00 1.29 2.51 3.80 Total Project Cost (including taxes) 253.80 556.20 810.00 2.82 6.18 9.00 /1 April 1975 5.02 Construction cost estimates have been established based on economical building standards and maximum use of local materials. Preliminary sketch plans were prepared by the Government and reviewed by the Association before negotiations. The estimated cost per square meter of the workshops is US$55 equivalent (Appendix 2), assuming that self-help will be utilized for site clearance and indigenous construction materials will be employed to the maximum extent feasible. This cost compares favorably with the cost per square meter of the primary schools constructed by the Elementary School Building  - 14 - Unit in Ethiopia (US$60 equivalent) aind with the estimated costs of the tural education centers in the second education project in the Sudan (US$75 eqiuiva- lent). Furniture and equipment cost estimates have been based on detailed lists which were reviLewed by the Association before negotiations. 5.03 Customs Duties and Taxes. All items specifically imported for the proposed project as well as remuneration of technical assistance personnel would be exempt from direct customs duties and taxes in line with the practice of the Rwanda Government to grant customs and tax exemption to imports for educational purposes and to technical assistance staff. Much of the building materials to be used in construction and some furniture and equipment would be acquired on the open market and accordingly would have been subject to customs duties and/or taxes. Of the estimated costs, about US$200,000 eqaiva- lent would represent customs duties and/or taxes. 5.04 Contingency Allowances add 25% for unforeseen factors to the costs of civil works for the workshops, 10% to the cost of equipment and 5% tc -he costs of printing equipment, paper, vehicles, technical assistance, prolect evaluation and project administration. The 25% contingency for the civil works cost of workshops is justified in case attempts to utilize self-help and local materials should not turn out to be as successful as presently envisaged. This contingency is based on estimated construction cost per square meter of US$70 without use of self-help and local materials and cn the possibility that only half the institutions will be constructed as envisaged in the US$55 equivalent estimate. Estimated price increases are based on the following annual rates of price escalation reckoned up to t1e estimated time of completion of construction, delivery of equipment and termination of professional services: Furniture, Equip- Technical Assis:ance ment, Vehicles, Project AdministrAition Civil Works Paper and Project EvaluaLtion 1975 15% 11% 9% 1976 12%2 7.5% 6% 1977 12%, 7.5% 6% 1978 12% 7.5% 6% 1979 12% 7.5% 6% 1980 12% 7.5% 6% 5.05 The foreign exchange component has been calculated as follows: (a) civil works, 55%; (b) furniture, 65%; (c) instructional equipment, 7'%; (d) printing equipment and paper, 100%; (e) technical assistance, 70% (f) project administration, 60%. The foreign exchange component for civil works may seem high for the relatively simple structures contemplated, but local materials and labor are cheap, whereas all imported materials are very ex;pensive. Furthermore, even such a basic material as cement has to be imported. Inz.ud- ing contingencies, the foreign exchange component is estimated at about US$6.2 million, or 69% of the total project cost of US$9.0 milliLon.  - 15 - Project Implementation 5.06 The project would be implemented in about six and a half years after Credit effectiveness (Annex 8) including six months for completion of payments and withdrawals from the Credit Account. The SFCU carried out considerable preparatory work before negotiations (para. 5.02). A sum not exceeding US$30,000 equivalent would be required to cover project administra- tion expenditures incurred after March 30, 1975, so as to permit continuation of preparatory work in accordance with the estimated schedule. The SFCU would have overall responsibility for project implementation including liaison with the Association, the other Ministries and the local authorities, primarily the communes. Implementation of the project consists mainly of two elements: (i) provision and distribution of textbooks, student guides, furniture and instructional equipment; and (ii) design, management and supervision of con- struction. While implementation of project components depicted under (i) presents no unusual features, special procedures for design, management and supervision of civil works for the workshops have been developed to meet the objectives of: (a) encouraging community participation (para. 4.01) and (b) promoting low-cost construction (para. 4.06) and are summarized in the following paragraphs. 5.07 Site Selection. The SFCU would make a list of all potential work- shop sites according to the following criteria: (i) workshops would be adjacent only to primary schools which have at least two classes for each. of the fifth and sixth grades (para. 4.06); (ii) availability of at least one ha of land for agricultural work; (iii) at least one workshop per commune; and (iv) readiness of the commune to provide self-help for site preparation and construction work. Before negotiations, the Government forwarded to the Association a list of 66 sites chosen according to these criteria, and has confirmed that these criteria will be applied for all workshops. 5.08 Design and Construction Standards. The SFCU has developed design and construction standards for the workshops and is preparing preliminary lists of building materials to be bulk procured. The standard designs and advice on cost estimation would be sent by the SFCU to the bourgmasters who would be requested to provide the SFCU with the following data for eacn site: (a) conformity with the criteria outlined irn para. 5.07; (b) availability of local building materials and craftsmen; (c) expected community contribution toward the construction of the workshop; and (d) detai'ed cost estimates for each workshop. The SFCU would assist the bourgmaster in collecting the information, review the data, and make a recommendation as to whether construction work should be authorized in accordance with a phased plan of implementation. On the basis of a review of the data provided by the bourgmasters, the SFCU would finalize the list of building materials to be bulk-procured, purchase them, store them as appropriate and deliver them to the sites according to the phased implementation plan. 5.09 Management and Supervision of Construction. At the individual sites, construction would be carried out either by means of separate trade contracts or direct management of field teams, which may requize miobilization of funds.  -. 16 - For this purpose, advances would be provided by the SFCU to the bourgmasters in their capacity as legal representatives of the communes; the bourgmasters would be responsible for awards of the contracts; these are not expected to exceed US$5,000 equiLvalent per site. Supervision of construction woul:i be carried out by the bourgmaster himself with the assistance of the prov::.ncial inspector, and the clistrict inspector as well as the field staff of thl. SFCU. Upon receipts of bills and standard certificates, signed by the bourgm,:ster, and the provincial inspector, the SFCU would reimburse the local authority by crediting the postal. checking account of the commune. Before final acczeptance of the works, the field staff of the SFCU would inspect each workshop ior defects and liabilit:ies as appropriate. To ensure adequate maintenance or the workshops, the SFCU would initiate appropriate maintenance procedures and prepare a manual. on the maintenance of primary education facilities.., including the project workshops. Procurement .5 10 Civil Works. Neither foreign contractors nor the few local (::oa- tractors are likely to be interested in bidding for the small, simple, a;id often remotely sited structures proposed. Therefore, normal procedures for competitive bidding are not appropriate and the following procedures wcuLd be followed: (i) The communes would be responsible (para. 5.09) for procuring local materials available in the communes and hiring skilled and unskilled labor, either directly or by employing groups of craftsmen (who can be found throughout Rwanda). Labor costs are low in Rwanda and are not expected to exceed US$260,000 equivalent; materials procured by the communes (e.g., bricks) are estimated to cost US$320,000 equivalent. Self-help woule be employed to prepare sites. (ii) The SFGU would acquire building materials (e.g., cernent) whenever it is more economical to purchase these materials in bulk (US$330,000 equivalent) following local competitive bidding or, if the Association so agrees, the solicitation of competitive offers from local suppliers. (iii) The SFCU would also procure! imported building materials (US$780,000 equivalent) following advertisement in the local press and in adjacent countries (e.g. Zaire, Kenya). (iv) Civil works for the printshop and the SFCU offices (US$200,000) would be procured through competitive bidding advertised locally. lIender and/or quotation evaluation documents individually amounting to :.ess th.an US20,000 equivalent need not be reviewed by the Association prior to Contract award.  - 17 - 5.11 Instructional equipment, furniture and vehicles (US$850,000 equivalent) would also be procured by the SFCU following advertisement in the local press and adjacent countries. International firms are well repre- sented by local agents both in Rwanda and neighboring countries and prices are competitive. Review by the Association of tender/quotation evaluation documents prior to contract award would not be required for contracts of less than US$20,000 equivalent. In addition, to facilitate procurement of small items, contracts of less than US$2,500 equivalent would be awarded through local purchasing by the SFCU up to an aggregate total of US$200,000 equivalent. 5.12 Printing Equipment and Paper. Contracts for printing equipment (US$300,000 equivalent) and for the 700 tons of paper required for the printing of textbooks and student guides (para. 4.08) and estimated to cost US$1,000,000 equivalent would be procured by the SFCU following international competitive bidding in accordance with Bank Group guidelines. Tender evaluation documents would be reviewed by the Association prior to contract award. Financial Plan 5.13 The Financial Plan provides for IDA assistance of US$8.0 million to help finance the various major components of the project as follows: (US$ millions) Rwanda Category Government IDA Credit Total 1. Civil Works 0.18 1.45 1.63 2. Furniture and Instructional Equipment 0.20 0.55 0.75 3. Printing Equip- ment and Paper - 1.30 1.30 4. Technical Assistance 0.16 0.80 0.96 5. Project Admin- istration and Consultants' Services 0.05 0.55 0.60 6. Contingencies 0.41 3.35 3.76 Total 1.00 8.00 9.00 Of which taxes 0.20 - 0.20  - 18 - The total Government contribution would be RF 92.8 million (US$1,000,CO( equivalent), including RF 18.6 million taxes, spread over a period of s:Lx years with a maximum contribution of US$300,000 equivalent in any year. The Government attaches high priority to the project and the capital counter- part funds are within its capability. A schedule of annual budgetary appro- priations was agreed upon. The project can be implemented only if local. contractors and craftsmen are paid promptly and receive advances for z,.vbiliza- tion as appropriate (para. 5.09). Therefore, it is essential that a ravolving fund should be set up within the SFCU with an initial contribution of JS$100,0DO equivalent from the Government, from which the SFCU would procure those mate- rials and services which would not be disbursed by the Association directly to suppliers. The S'FCU would seek reimbursement from the Association ir. the normal course, and iuture Government. contributions to the revolving fund would be made so that the fund would be maintained at an average of $100,000 equiva- lent during the pro'Ject implementation period. The Government confirmed that the revolving fund will be established in a special account with the National Bank of Rwanda and provided assurances that the initial and continuing contri- butions to the fund would be made. The establishment of the revolving fund would be a conditior, of effectiveness for the Credit Agreement. 5.14 The recurrent expenditures generated by the project are esti::.ated at RF 65 million (including allocations for replacement of textbooks, ::aDer, vehicles, etc.), which is equivalent to 19% of estimated project cost, exclud- ing contingencies, technical assistance, project administration and prcject evaluation, or 5.7% of estimated Ministry of Education recurrent expenditures in 1981 (Annex 5). It is expected that project generated recurrent expendi- tures could be met within the Ministry's ordinary budget without undue si:rain. 5.15 Disbursements Disburseme.nts (Annex 9) would be on the basis of: (a) 100% of foreign expenditures for imported construction materil]s, furniture, instructional equipment, printing equipment, paper, and vehicles; (b) 75% of total expenditures for locally procured furniture, instructional equipment and vehicles; (c) 100% of foreign expenditures and 85% of local expenditures for technical assistance, project evaluation and consultants' services; (d) 85% of tota.l expenditures for locally procured construction materials, hired labor for construction and civil works by contractors; (e) 90% of total expenditures for local salaries and operating costs of the Project Unit.  - 19 - 5.16 Disbursements for locally procured materials and labor hired by the communes for the construction of workshops and for local salaries and operating costs of the Project Unit would be made against certified statements of expenditures, documentation of which would not be submitted to the Association, but would be retained by the SFCU and would be available for review by the Association in the course of project super- vision. This might amount to about US$700,000 equivalent. This approach is justified by the amount of documentation involved which, if submitted directly to the Association, would create administrative difficulties and might delay disbursements. Disbursement for furniture, equipment and construction materials locally procured by the SFCU would be made against normal documentation. Disbursement for foreign procured goods would most probably be made directly to the supplier. 5.17 Any funds remaining on completion would be used for the construc- tion of additional workshops or upgrading primary schools (para. 4.10) or for project related items to be agreed by the Association. The project is expected to be completed by December 31, 1981. The proposed Credit Closing Date is June 30, 1982. VI. BENEFITS AND JUSTIFICATION 6.01 Benefits. Pressure on land is intense in Rwanda, and very little additional land is available for agricultural development. Greater produc- tion from the existing family smallholdings is thus essential to feed the growing population (para. 2.04). At the same time public pressure for educa- tion has led to Rwanda having a relatively high enrollment ratio at the pri- mary level without, however, equipping the students adequately for a productive life on the land. The fundamental educational problem in Rwanda is therefore to increase the productivity of those primary school leavers--the great majority--who enter rural life (para. 2.06). To bring about this qualitative change, practical subjects have been introduced into primary education and the Government is considering a reform proposal (para. 3.06) which would further expand practical subjects teaching. 6.02 The proposed project would help improve the quality of primary edu- cation both for the system in its entirety and with respect to a first phase of a program to introduce practical subjects geared to a rural environment. Textbooks and students guides would be given to all primary school students, thus improving the efficiency and quality of the system. The workshops would permit about one-fourth of the primary student body to receive appro- priate instruction in rurally oriented subjects, which in the long term should lead to greater rural productivity. 6.03 These improvements and expected benefits would be made through the medium of the SFCU; the SFCU is expected to cause benefits beyond those usually encountered in education projects. Although the direct employment  - 20 - creation of the project is only about 500 man-years, the technical ad,;iz-e and assistance offered by the SFCU would improve the quality of constructionl at the local level through on-the-job training of craftsmen and unskillecd :Labor. The SFCU would also greatly strengthen the channels for transfer of educational funds from the central Government to the local authorities. 6.04 Risks involved in the project. The project would involve thi Govern- ment in school construction for the first time; this is a development necessary to improve the genercally low standards in primary schools and to give :he Government in the longer term greater control of school planning and develop- ment (para. 4.03). But the Government necessarily starts with little experi- ence and a limited implementation capacity. The finance mechanisms envisaged for the construction of the facilities would minimize the administrative work in connection with disbursements but would at the same time lessen the control over individual expenditures. 6.05 To minimize these risks the project is small. Care has been taken to ensure an egalitarian distribution of access to a better quality education by the establishment of a workshop in each commune. In addition, the coni- struction elements are a relatively small proportion--about one fourth-.-of total project cost and will be carefully evaluated during implementation. If it is seen that t]he proposed implementation and finance mechanisms for the project's civil works operate less successfully than now envisaged, they would be revised at an early stage. VII. AGREEMENTS REACHED AND RECOMMENDATION 7.01 During negotiations, agreement was reached with the Government on the following principal points: (a) the revision of selection/excamination procedures for entry into secondary schools, the improvements/ repairs for existing primary schools, the provision of technica:L assistance and criteria for the site selection (paras. 3.08, 4.06, 4.07 and 5.07); (b) the administ:ration of the project by the SFCU (paras. 4.04 and 4.05); (c) the project's financial plan and the establishment and functioning of a revolving fund to be administered by the SFCU (para. 5.13). 7.02 In addition to the customary conditions, the establishment of the revolving fund (para. 5.13) would be a condition for Credit effective:liss.  - 21 - 7.03 Retroactive reimbursement of a sum not exceeding US$30,000 equivalent is recommended for operational expenses of the SFCU (para. 5.17). 7.04 Subject to the above conditions, the proposed project constitutes a suitable basis for an IDA Credit of US$8.0 million equivalent on standard terms to the Government of Rwanda.   APPENDIX 1 Page 1 THE EDUCATION AND TRAINING SYSTEM General 1. The Education Law of August 27, 1966 designates the Minister of Education as primarily responsible for education in Rwanda, although other Ministries conduct training programs also. The educational system is general- ly patterned on that of Belgium and structured as follows: 6 years of pri- mary education starting from age seven, followed by 6-7 years of secondary education which includes technical-vocational courses at both lower and upper secondary level, and by 3-7 year courses at post-secondary and univer- sity level (Chart 2). 2. The system is marked by a strong dichotomy between the primary and secondary levels. Generally primary schools have very poor facilities, often consisting of a mud hut with an earth floor and very little window space. Desks are rare: pupils sit on logs of wood or on large stones. About 97% of the recurrent funds are taken up in paying teachers salaries, and the most simple teaching aids such as books, paper and pencils are often lacking. The first three grades have only half-day schooling. There are over 50 students per teacher. 3. Only 6% of primary leavers achieve a secondary school place. Second- ary school facilities are much better than those in primary schools; nearly all the schools have been constructed by missionaries or by foreign aid, and 80% of the recurrent costs are met from non-government sources. Secondary schools are all boarding and employ a high proportion of foreign teachers: there are less than 13 students per teacher. As a result, the secondary school recurrent cost per student is nearly 50 times that in primary school. Ei'm orn SdLt. 4, The total enrollment in 1973/74 amounted to nearly 400,000, repre- senting about 52% of the 7-12 year (inclusive) age group. Total enrollments have remained virtually constant since 1968/69 but there has been an enroll- nent increase of about 35,000 in grades 4 through 6, which have whole day schooling, and a similar decrease in enrollments in the first three primary grades which have only half-day schooling. About 45% of the pupils are girls, 5. The number of teachers has increased since 1968/69 from 6,400 to 7,800. The student-teacher ratio is thus 51:1 but this becomes a ratio of 35!i if account is taken of the half-day classes. Teacher qualifications have steadily improved: less than 20% of the teachers now have only a pri- mary school education themselves compared with 30% in 1968/69. Over 40% of teachers are now fully qualified by Government's own standards. However, a fully qualified teacher is paid more than twice as much as an unqualified  APPENDIX 1 Page 2 one, and the first priority of the Government should be to improve facili;:ies rather than teacher qualifications. About 45% of school classrooms are made of mud and even in the brick built schools furniture, equipment and teac h::ng aids are often lacking. No more than 40% of schools offer the full primar7y cyc'e. 6. Despite considerable progress, primary education remains beset biy many problems. It has remained essentially a preparation for secondary education. Only a small minority (6%) of those who finish primary education, however, can be admitted to secondary education; as a result of the growing primary school output, opportunities for access to secondary schools are decreasing. For the great majority whose education is ended, the primary system is of little relevance. Post-Primary Education 7. To meet the needs of those who have no access to secondary edu- cation, a considerable number (75) of small complementary schools for gi:ls has been created, providing practical training for about 5,000 in 3-year post-primary courses. A number of years ago, the Government also started a similar form of practical training for boys through the establishment i:3f Centres d' Education Rurale et Artisanale (CERAR); in 1972/73 there were ten with an enrollment: of about 600. These provide useful training; al- though enrollments have been growing steadily, it is unlikely that more than a small fraction of the needs can be met. Post-primary education h .s to compete with the primary system for extremely scarce resources which will limit future grow th. Secondary Education 8. The structure of secondary education is shown in Chart 2. Enrc:l:L- ments in general secondary education have grown only slowly (24% over seven years) while enrollments in teacher training institutions have been virtually unchanged. Enrollments in vocational courses at lower secondary level ar,i in technical courses at upper secondary level (induistrial, agricultural, medical, etc.), have nearly doubled since 1965 with girls accounlting for 40% of all technical students. Over the last three years enrollments grc 1:h has levelled off. Total 1973/74 enrollments amounted to 10,500, about 2% of the age group. 9. The number of secondary school teachers has increased rapidly from 595 in 1966/67 to 834 in 1973/74, resulting in a very low, uneconom- ical pupil--teacher ratio of 12.6:1; the share of expatriate teachers drop,ed from 65% to 36% over the same period. The majority of the Rwandlese teach>is, however, are not fully qualified: two-thirds of them have not gone beyond secondary education themselves and are qualified only as primary school teachers. Secondary school facilities are of reasonable standards.  APPENDIX 1 Page 3 10. The present state of secondary education reflects unplanned de- velopment in the past assisted by largely uncoordinated foreign aid schemes over which the Government exercises little control. In 1971-72 there were 63 secondary schools with an enrollment of 10,500 students (of which 15 were "private" with 1,100 students), resulting in an uneconomically low average school size of 167 students. Only one school has more than 500 students; several have less than 100. Many classes, particularly in tech- nical education, enroll only seven to fifteen students. All secondary students are boarders, and the schools are single sex. Available classroom space is often not fully utilized because boarding facilities are limited. With a pupil-teacher ratio of 12.6:1 enrollments could be increased without increasing the number of staff. 11. In the absence of a manpower survey, it is difficult to judge whether secondary education is meeting present manpower needs. On the strength of available data, however, one would expect serious imbalances. Among the 16 secondary schools with technical and vocational courses ad- ministered by the Ministry of Education, there is only one agricultural school (at Butare) despite the predominately agricultural character of the economy. Its student body constitutes only 7% of all students in technical and vocational schools; however, this small enrollment may reflect the limited actual demand for agriculturally trained personnel as distinct from the need for them. More than half the technical students are enrolled in courses for nurses and medical assistants, social workers and domestic science. 12. P Training takes place at three levels: (i) a 2- year auxiliary teachers course at secondary level form 2 and 3 for those who have failed in their first secondary year; (ii) a 2-year lower level teachers course at form 4 and 5 and (iii) a 4-year upper level course at forms 4 through 7. Virtually all students of the lower courses pursue a teaching career but only half of those in the upper course. This propor- tion is expected to improve as the more attractive administrative vacan- cies are filled. Most upper course graduates who become teachers are em- ployed in lower secondary schools. 13. The primary teacher training course is given in institutions which often offer general secondary education also. The courses are very similar to the general secondary courses but with time being devoted to education and to periods of teacher training. It is likely that more spe- cialized courses of shorter duration would be more efficient and they should be considered as a part of the review of the secondary system which will be taking place in the next year or so. 14. Technical and Specialized Education. The Ministry of Education is responsible for the operation of agricultural, industrial, commercial, medi- cal and other technical schools, but other Ministries are also involved. Agri- cultural education is relatively undeveloped. In addition to the agri- cultural school mentioned in para. 11, which is training agricultural  APPENDIX 1 Page 4 assistants at upper secondary level with an enrollment of about 100 il a 4-year course, the Ministry of Agriculture is operating an agricultiTal extension worker school at lower level which enrolls only 40 in a 2-year course. With eighl: schools providing medical training at five levels (lower level nursing, diploma nurses, medical assistants, university ievel nurses, doctors) mewdical education and training is comparatively well de- veloped. In addition to the technical-vocational schools of the Mini.;try of Education, the Ministry of Health and Social Affairs is operating '.oca- tional training centers at lower secondary level. 15. Out-of-School Education is provided by many public, semi-puLllic and private bodies; the 1970 statistics regarding the most important tro- grams are given below: TABLE 1 - Student registrations Baptism Social Nutritional Literacy Total As % classes centers centers classes of Population Total 250,000 48,000 16,000 7,400 321,000 18 of which 7-14 years 108,000 14,000 - 2,700 124,000 26 15-20 80,000 27,000 - 3,200 110,000 20 21-40 " 62,000 8,000 16,000 1,500 88,000 10 Instructional staff 1900 660 100 85 Source: T. Hanf et al: Education and Development in Rwanda, 1974. 16. Both the social and nutritional centers cater mainly for womei and girls; as in the case of post-primary education, this sector offers more opportunities for women than for men. The value of the training given varies widely, as do the length of the courses and the participaticn ratios. While the figures given above tend to overemphasize the actual importance of these courses there is no doubt that out-of-school educa- tion has an importani: place in the overall educational picture and atteiripts to fill the gaps left: by the formal system. Higher Education 17. Higher education is provided in a "Grand Seminaire", which trains for the priesthood and enrolls 24 students in philosophy and 40 in theology, the National University (humanities, science, economics, medi- cine, nursing and law) and the National Pedagogical Institute (training  APPENDIX I Page 5 of teachers for the first cycle of secondary education). In addition, a considerable number o' students are enrolled abroad. 18. The National University was established in 1963 with Canadian assistance and li.mited itself initially to short 3-year courses in human- ities, science and economics which are now gradually being extended to full degree courses. Additional ass4stance was received from Belgium to establish and operate a Faculty of Medicine, which now already runs a full 7-year program, and from France for the School of Modern Languages. In 1973-74 law studies were begun and the total enrollment amounted to 489. Only 59 women are enrolled. 19. Medicine is the most developed sector: enrollments in the 7-year medicine program and in the 3-year nursing course number 188 or 38% of the total number of university studentLs. Belgian aid for the medical program was intended to meet urgent needs on a short-term basis and is now being withdrawn. Students from the faculties of humanities and sciences are entering the teaching profession because of limited employment opportunities elsewhere; these faculties are therefore in direct competition with the adjacent National Pedagogical Institute and are likely to saturate the demand for teachers in a few years. Simi- larly, in view of the considerable numbers of Rwandese students studying agriculture abroad the intention to begin a new faculty of agricultural sciences in the universitv should be very carefully considered as lower level training at the Butare agricultural school could well meet the ef- fective demand at less expense, at least in the coming years. 20. The National Pedagogical Institute is located in Butare near the University. It was established with UNDP/Unesco assistance, and trains lower cycle secondary school teachers in a 3-year post-secondary course. Its 1973/74 enrollment was 246 of whom 39 were women. 21. In 1973/74 554 Rwandese students were studying abroad at uni- versilIes and other post-secondary institutions. Among them 76 were studying agriculture, 47 medicine, 27 veterinary medicine, 25 economics and 25 education. Many of these students are expected to return to the country by 1976 ard difficulties may be experienced in absorbing all of them into the administration. The countries receiving the most students were Belgium with 198 and the USSR with 132. Education Finance 22. tal expenditurs _for education under the jurisdiction of tthe Ministry of Education are estimated for the year 1972 as follows:  APPENDIX 1 Page 6 Table 2 Recurrent Capital Total (in millions Rw. F.) Ministry of Education 677 12 689 Private Sector 123 36 159 External aid 644 95 739 Total 1,444 143 1,587 Total expenditures are estimated to have reached 7.5% of GDP in 1972 while Ministry of Education expenditures alone are equivalent to about 3.2% of GDP. 23. Recurrent eenditures. Available information permits only the analysis of the recurrent expenditures of the Ministry of Education. Ex- penditures made by other Ministries cannot be accurately determined but their total amount is thought to be very small. Detailed breakdown of re- current expenditures of the Ministry of Education from 1967 to 1973 is given in Annex 4. From 1967 to 1973 recurrent expenditures by the Ministry of Education increased at an average rate of 11.4% p.a., but the share o:: the total government recurrent budget for education decreased slightly from 25.9% to 24.5%. Howevrer, due to a drastic increase in teacher salaries :.n 1974 (para. 3.09), the 1974 budget shows an increase of 36% over 1973 anc:L an increase in the share of total government recurrent expenditures to 2Y.5%. Furthermore, even this very high allocation to education only covers abol.t half of total recurrent educational expenditures, the rest being suppliet: mainly by foreign aid. The pattern of recurrent expenditures by level ard type of education has been as follows. Table 3 Percentage of Total 1967 1973 Primary Education 69.7 65.3 Secondary General Education 19.2 14.0 and Teacher Training Secondary Technical Education 3.9 4.1 Higher Education 4.2 14.3 General administration 3.0 2.3 and inspection Total 100.0 -  APPENDIX 1 Page 7 These percentages mainly reflect the fact that the Government's own effort has been concentrated on primary education, while secondary and higher edu- cation have been paid largely by foreign aid. The Government has, however, increasingly been requested to cover the recurrent expenditures for higher education as may be observed in the dramatic increase from 4.2% of total in 1967 to 14.3% in 1973. 24. The Government pays the salaries of all primary teachers and of Rwandese secondary teachers. Teacher salaries were increased by about 30% in the Spring of 1974 and now amount to about RF 82,000 per year for a quali- fied primary teacher and about RF 150,000 for a secondary teacher. 97% of recurrent expenditures on primary education are spent on salaries leaving an annual amount of US$0.36 equivalent per pupil for school material and US$0.16 equivalent for books. 25. Annual recurrent expenditure per pupil in primary education has increased from RF 720 (US$7.20 equivalent) in 1967 to RF 1,115 (US$13.40 equivalent) in 1973. No fees are levied in primary education, but the Gov- ernment is contemplating the introduction of an annual fee of RF 100 per pupil to be earmarked for maintenance of primary schools. Fees for secondary education have been raised from RF 1,000 to RF 2,000 in 1974. Higher educa- tion is free. The Government pays each university student RF 5,000 for 10 months. Thus an average student receives RF 55,000 p.a. which is about nine times the national income per capita. It would be advisable to urgently review this practice. 26. Capital expenditures. By far the largest proportion of capital expenditures (some 65% in 1972) are supplied by foreign aid and spent on investments in secondary and higher education. Primary schools are largely being constructed by the communes with little financial assistance from the Government. External Assistance to Education 27. Rwanda is receiving a considerable amount of external assistance, from some 20 multilateral and bilateral donor agencies for the operation and development of its education system. Because most foreign aid projects span periods of more than one year, it is difficult to estimate the value of ex- ternal assistance on an annual basis. However, it is estimated that more money was spent on education by external aid in 1972 than by the Ministry of Education. Most foreign aid is recurrent in nature: the cost of experts, teachers and professors, scholarships and other operating costs. The impres- sion is that, after a period of extensive capital investments, donors are now more committed to keeping the institutions operational by providing staff and meeting other recurrent expenses. Among the international agencies, UNDP/ Unesco, FED and UNICEF are the most active; among the bilateral donors Belgium, France and Canada.  APPENDIX i Page 8 28. Foreign aid has made a considerable impact on the education system, especially at the secondary and higher education levels. However, since foreign aid schemes were largely uncoordinated and no government plan was available to serve as a guide and to set priorities in the framework of na- tional objectives, developments have escaped effective government control, have outgrown available national resources to manage and operate the facili- ties, are often unnecessarily expensive and not always geared to the country's needs. 29. More effective government control of the secondary and higher educa- tion system through improved planning and coordination of all external assist- ance schemes is now urgently needed. Through rationalization, important cost savings could be achieved in secondary and higher education. To avoid fur- ther proliferation of scarce resources (both local and foreign), all new pro- jects should be carefully screened and evaluated on the basis of their economic and financial justification. The Proposed Education Reform 30. Aware of the inadequacies of the present education system, the Ministry of Education has proposed to restructure primary and secondary education in accordance with economic and social needs. 31. Primary ed'iLcation, for a majority of the students, tould becoine terminal, preparing students directly for entry into the labor force. i7c adjust the school leaving age to the legal minimum age for employment, imnd to reduce juvenile delinquency, the entry age for the first grade will be raised to nine or ten years (still to be determined). Student promotioni throughout the six-year course will be automatic and the ultimate objeclive is to enroll 100% of the age group in this course. Instruction in the f'irst four years will be in the local language and a gradually increasing elerLeat of practical work (1-1/2 hours per week in the first two years, four hoairs in the third and fourth grade) will be introduced. After the fourth grade, following aptitude tests, 90% of the students would be admitted to a twc'-iear terminal course with 50% of the time devoted to practical skill training :.n agriculture, handicrafts, etc. The existing three-year post-primary courses (CERAR, girls' complementary schools) would be compressed to two years a-c[ integrated into these terminal two-year primary courses. 10% of primary leavers will be channelled into a two--year preparatory course for secondary education, with intensive instruction in French, but also a remaining ellenent of practical work (about two hours per week). 32. It is realized that the reform of primary education would have important effects on t:he secondary education system, and the Government is in the first stages of considering a reform of the secondary system, whi?:h will be geared to the country's needs for higher level manpower.  APPENDIX 1 Page 9 33. Much excellent work has been done by the Ministry of Education in explaining the need for educational reform, and the thinking behind the re- form proposals. However, opposition has manifested itself to some of the measures, in particular the proposals to raise the age of entry to primary schools and to select for secondary education after only four years primary. As a result, the implementation of the reform, which it was originally hoped to begin in September 1974, has been delayed by at least a year, and the final outcome is not yet known. This delay may be useful in some ways as it should give the Ministry a chance to work out some of the details needed for a successful implementation of the primary education reform and to con- sider the implications of the primary reform on the secondary education system, a system which itself needs rationalization (para. 32).  APPENDIX 2 Page 1 RWANDA - EDUCATION PROJECT SCHOOL BUILDING IN RWANDA Present Situation 1. Existing primary schools reflect four different patterns of con- struction standards, 1/ namely: (a) primitive mud-huts; (b) schools built by some communes of burnt or mud- brick walls covered with corrugated metal, with finishes, windows, doors, and furniture incom- plete and/or of insufficient standard; (c) missionary schools made of burnt bricks with roofing tiles over wooden trusses; and (d) foreign-aid schools of relatively high standard, made of concrete blocks, metal trusses and cor- rugated asbestos cement. Mud-hut schools and, to a lesser degree, commune schools are occasionally being constructed by the villagers providing unskilled labor free. 2. School furniture in many primary schools is either missing coTI- pletely or of extremely primitive standards. Mud schools normally have very small or no windows, and the lack of floors results in dust and di:rt. In general, the majority of existing primary schools in Rwands provide Jle3s than satisfactory settings for the teaching process. 3. The average number of classrooms per primary school is four, and the average number of class-groups per school is 5.7, ranging from 2 in nany of the more recently established schools to 38 in some cases. Although there do not seem to exist gross inequalities in the spread of primary schools in the country, there is a need to rationalize the entire system of existin;, primary school facilit:ies. Project Workshops 4. Cost estimates for project workshops could not be based on any of the prevailing patterns of primary school construction since existing or 1/ See attached tables on "School Buildings by Provinces and Types of Con- struction" and on "Building Standards of Primary Schools in Rwanda.'  APPENDIX 2 Page 2 recently constructed schools either are of too low standards (mud-huts and, less so, commune schools), or of too high standards (foreign-aid schools), or they depend on special conditions which cannot be multiplied as required (missionary schools). Furthermore, reliable and documented cost data are available only for schools which have recently been constructed by the European Development Fund (FED). 5. Construction standards of workshops would be between the standards of the commune schools and those of foreign-aid schools. Accordingly, es- timated cost for workshops (US$55 per m2) are between cost estimates for commune schools (35-50) and foreign-aid schools (85). Construction cost estimates of US$55/Ln2 for workshops would allow only for austere standards of construction and are viable only if attempts to improve local materials and construction methods and to utilize free self-help labor are successful. Cost estimates should be considered as cost limits so as to induce serious efforts to develop economical construction patterns suitable for all future school buildings in Rwanda. 6. While development work by the School Financing and Construction Unit should not be limited in scope by prescribing detailed specifications a priori, certain basic performance criteria would be established before design work commences, relating to size and shape of rooms, natural lighting, weather protection and dust control, minimum life-time of structural and non- structural building elements, maintenance requirements, cost-in-use versus initial investment cost, etc. 7. Implementation of project institutions requires coordinated efforts by the Ministry of Education, the School Financing and Construction Ulnit, its field staff, and the communes involved, with a view to maximum use of local materials and community participation. Implementation procedures would be developed not merely as means of completing project workshops but also as one of the project aims, namely strengthening of administrative and managerial capabilities both in the Ministry of Education and on the commune levele  TAIBLE I HliANDA - EDUCAlTION FROJ3' CT SCHOOL B3UILDINGS 'BY PROVIYCES AND TYPES OF CONSTRUCT ION ~~~ N~~iumboer of' Classrooms built at 1 H U) .,7 I D ,O IL~~~~~~~ -I14 -1Lqi H, ol Butare 21) KQ(y) 1 L61 831 66 68 3 l0 ~~~Tilmha - ~~178 689 '2685 4rumha 10068~ Tu 2 V4 3 96 3. Qyangugt 1 43 931 )4)4 1 1 4 77 3920 03 4. Gikongoro 1137 )0 10,61 287k 69 I 76 1 72 ~ 4- K Gisenyi ~~~~~~~~~~~194 j) 658 970 j3631 117 5076 52 68 6Gitarama 290 1127 169 729- 8 2 17)4 3 17 7. K bungoo 139 577 829 129172376 7 ~8. Kibuye 19 603 866 211 90 21 1 74 99 603 9* Kigali 2C7 857 1271 133 65 2 6 1 7 Ruhengerli 207 836 1248 332 115 3C 336) I~.Universite' 8 2112 22 Radiophoni- 1OANDA 1972; 77)417 1 12 80 3291 961 627 263)4 23)4 77)47 Percent of Total 42.5 12.4 8.1 3)4.0 3.0 100.0 Source: Minist--y of Educat-ion  IA BLE 2 94ArrDA: OEDUCATION PA.OJECT 3tul/insv Standards of Primary Schools in Rwanda Self-help Mud Eut Commune School Missionary School Foreign-aid School 457, of all existing To be found mainly in Schools exhibiting Primary schools finan-. classrooms are of this communes that are skillful application of ced and built by FED as type, reflecting the relatively wealthy and/ local materials and part of their GENERAL DESCRIPTION simple craftsmanship of or are administered by still being in good "Paysanoats" projects indigenous housing capable burgomasters shape after many years invariably are mission- ary schools Classrooms are 10 to 15 Generally classrooms are Appropriate in m.ust In general fully feet wide, with very of almost sufficient respects appropriate, though too small or no window open- size and shape; windows, high in respect of some STANDARD OF ACCOMNKDA- ings; dust floors, doors and furniture details TION AND CONSTRUCTION Standard of accommoda- varyingly incomplete and/ tion does not satisfy or of insufficient minimum educational standard. Could be requirements improved to satisfy minimum requirements Walls: adobe or sun- Walls: burnt bricks or Walls: burnt bricks, Walls: concrete blocks baked mud bricks: roof natural ston,e in cement occasionally sun- plastered on both sides; construction: unpro- mortar; roof construc- baked mud bricks; roof roof construction: metal cessed eucalyptus wood; tion: roughly hewn construction: wooden trusses; roofing: corru- CONSTRUCTION MATERIALS roofing: corrugated wooden roof trusses; or metal trusses;rocf- gated asbestos cement; metal, roof tiles or roofing: corrugated metal; ing: burnt roofing tiles; windows: metal glazed; thatch; windows and floor: concrete floor: concrete suspended ceilings doors: often non- existing or primitive Genuine community effort. Administered and financed Administration, financing, Through a highly effi- Funds for corrugated by the communes with some management and cient project office for metal from commune budget free labor and/or funds supervision by (highly the FED-financed ADMINISTRATION or donated by villagers for materials from the motivated) expatriate 'Paysannats;" bulk- AND villagers missionaries purchase of imported FINANCING materials, assembly of prefab part in own workshop; direct hiring of labor on the spot Only unskilled labor is Constructed by local Missionaries procure Implementation managed required which is often craftsmen under the materials and hire by expatriates, either provided for by villagers; supervision of the skilled labor; unskilled FED staff or volunteers, IMPLEMENTATION (PROCURE- construction initiated and burgomaster labor provided free by including expatriate on- MENT, ON-SITE SUPERVISION, supervisied byparents' parishioners site supervision ETC.) committee or councilmen CONSTRUCTION COST PER M2 Total : 0 - 15 US$ Total : 35 - 50 US$ Total : 30 - 40 US$ Total : 85 US$ TOTAL, MATERIAL, Material: 0 - 15 US$ Material: 25 - 40 US$ Material: 25 - 30 US$ Material: 63 US$ LABOR Labor : 0 Labor : 5 - 15 US$ Labor : 5 - 15 US$ Labor : 22 US$ CONSTRUCT ION COST PER 0 - 500 US$ 1,500 - 2,500 Us$ 1,500 - 2,000 US$ 5,000 US$ CLASSROOM EXPECTED LIFE Between 2 years and possi- Between 10 and possibly Due to careful main- 25/30 years and more, if OF STRUCTURE; bly 10 years, if minimal 20 years depending on tenance 20 years and more; maintained properly MAINTENANCE maintance is provided degree of maintenance roofing tiles tend to deteriorate earlier NET PRESENT COST PER CLASSROOM (MAINTENANCE 27, OPPORTUNITY COST OF 600 US$ 2,680 US$ 2,210 US$ 5,800 US$ CAPITAL 12%, LIFETIME 30 YEARS) No constraints, but Standards and crafts- Success depends entirely Suitable for large-scale because of insuffi- manships could be im- on motivation and skill program but requires cient standards of proved. Suitability of individual missionary. high input of expatriate accommodation and cons- of implementation Recently, primary school technical assistance and truction not suitable procedures for large- construction through too expensive to form SUITABILITY AND for IDA school cons- scale program is missionaries has been basis for general pri- CONSTRAINTS truction program doubtful, but pro- reduced to a trickle mary school construc- cedures and standards tion in Rwanda could be adjusted to serve as basis for small-scale program   I ZN EN E.ON . . .CN.N .. . . . .N .N . N .- . .NNNN N N N N~~~~~~~~~~~~~~~~~~~~Z   ANNEX 2 RWANDA - EDUCATION PROJECT Population of Working Age (15 years and more) by Occupational Groups, 1970 of which Male Female Total Rwandese Nom-Rwandese Professional and technical workers 10,300 2,000 12,300 11,800 500 Administrative, executive and managerial workers 500 10 510 410 100 Clerical workers -2,000 190 2,190 2,130 60 Sales workers 5,200 462 5,660 5,210 450 Farmers, fishermen, hunters, loggers and related workersj! 762l000 875,000 1,637,000 1,628,500 8,500 Workers in mining & quarrying 2,1400 - 2,1400 2,380 18 Transport and Com- munications workers 2,060 o 2,060 1,860 200 Artisans and workers in manufacturing 15)400 1,160 16,560 16,100 460 Service, sport and recreation workers 8,000 800 8,800 8,700 100 Armed Forces 550 - 550 540 10 Total employed 808,410 879,620 1,668,030 1,677,630 10,400 Total resident population, aged 15 years and more 1,755,870 So-urce: 1970 Demographic Survey it should be recalled that, in the Demographic Survey, unpaid family workers are considered as "employed". October, 1974  RWANDA - EDUCATION PROJECT Estimated RqieetanSupyoMapwrwtEdctobendPmryLe'vel Total Supply from Replace- Av. Annual Additional Existing Increase ment needs Requirement Requirement Institution Excess 1970 1975 1980 1975-80 1975-80 1975-80 1975-80 1975-80 Supply 1. Wage Employment 49,100 67,200 92,800 25,600 6,100 6,300 31,700 2. Out of which educated beyond primary level 26,000 36,000 50,200 1h,200 3,200 3,500 17,400 19,500 2,100 Source: Demographic Survey for 1970 figures, supply figures based on Ministry of Education estimates, and forecast prepared by Bank Group staff with the following assumptions: 1. All wage employment is in secondary sector (20,000 in 1970) and tertiary sector (29,000 in 1970). 2. Secondary sector employment increases by 6% annually and tertiary sector employment by 7% annually. 3. 30% of increase in secondary sector employment needs education beyond primary level; 70% for tertiary sector. h. Replacement needs are 2.5% annually of 1970 stock. Pec-mber 197h  ANNEX 4 R W A N D A EDUCATION PROJECT Enrollments and Recurrent Expenditures of the Ministry of Education (Millions RF) 1/ .-~~~~~~~~~~..a' ~~~~~~~Annual % increase Annual 7. increase Academic Year/ FYx Academic Year FY Academic Year FY (decrease) 1967-1971 (decrease) 1971-1973 Level of Education 1966/67 1967 1970/71 1971 1972/73 1973 enrollments expenditures enrollments expenditures 1. Primary Education 346,000 248.2 419,000 386.9 399,000 444.8 5.0 11.7 (2.4) 7.2 2. Secondary Education, General Educ. and Technical Education 7,634 64.4 8,862 80.5 9,136 95.9 3.8 4.2 1.5 9.1 3. Secondary Educ. - Technical Educ. 881 14.0 1,105 20.3 1,449 28.2 5.8 9.8 14.5 17.9 4. Higher Education 257 14.8 700 66.5 847 97.2 28.5 45.6 10.0 20.9 5. General Administration and Inspection 10.7 23.8 15.9 22.1 (18.0) 6. Total Recurrent Expenditures, Ministry of Education 356.1 578.0 682.0 12.9 8.6 7. Total Recurrent Public Expenditures 1,375.0 2,173.0 2,784.1 12.1 13.2 8. 6 As Percentage of 7 25.9 26.6 24.5 9. GDP at Factor Cost 15,220 20,850 22,600 8.2 4.1 10. 6 As Percentage of 9 2.3 2.8 3.0 1/ September - July 2/ January 1 - December 31 3/ Staff estimate SOURCE: Ministry of Education, Ministry of Finance, and Bank Group staff estimates. October 1974  RWANDA - EDUCATION PROJECT FORECAST OF RECURRENT EXPENDITURES OF THE MINISTRY OF EDUCATION AND OF PRIMARY SCHOOL ENROLLMENT, 1977 - 1985 ALTERNATIVE 1 ALTERNATIVE 2 1973 1974 1977 1981 1985 1977 1981 1985 Actual Budget 1. Total recurrent public I expenditures 1/ (Millions RF) 2,784.1 3,160 3,630 4,410 5,370 3,970 5,380 7,290 2. Total expenditures, Ministry of Education (Millions RF) 682.0 930 1,020 1,150 1,390 1,110 1,500 2,040 3. Expenditures on primary education (Millions RF) 444.8 595 645 720 880 725 980 1,330 4. Expenditures on primary teachers' salaries (Millions RF) 428.7 580 620 690 835 680 880 1,200 5. Average teacher salary (RF) 55,124 74,0002/ 76,000 79,000 80,500 88,500 88,000 95,000 6. Number of primary teachers 7,777 7,900 8,150 8,750 10,400 8,450 10,000 12,600 7. Pupil-teacher ratio 51.1 51.02/ 50.0 47.5 45.0 50.0 47.5 8. Enrollment, primary 2/ education 398,000 402,000 408,000 417,0t0 467,000 422,000 475,000 567,000 1/ Regular budget 2/ Bank Group staff estimates SOURCE: 1973 - 1974 See Annex 4 1977 - 1985 Forecasts prepared by Bank Group staff with the following assumptions: Alternative 1 Alternative 2 (a) Rate of growth of total public expenditures 5X annual 7.9% annual (b) Expenditures of Ministry of Education as % -1 h.--1 -l- 2I t2 _ al .......- (28%) 1981. ~~~~ constant at the 1973 level (65.2%) tfl n., pfi-,y ~u.aLion as k ot to be reduced to 63% by > total expenditures of Ministry of Education 1978, then constant to be reduced to 90% by 1981, thena (d) Expenditures on salaries as % of expenditures to be reduced to 95% by constant x on primary education 1977, then constant 3% annual till 1978, then 2% annual I" (e) Increase in average teacher salary - ,, iease every tourth year  RWANDA EDUCATION PROJECT Two alternative projections of primary teacher requirements for the period 1973-1985 1973 1985 Teacher needs Total needs Total 3 Total Annual Alternative I - low' Actual Projected Expanslon SE lacement 1973-1985 S deficit deficit Primary enrollment 398,000 467,000 Pupil/teacher ratio 51.1 45 Teachers 7,777 10,400 2,603 4,300 6,900 6,850 50 4 /2 6,500"- 9,100 6,850 2,250 190 Alternative II - high' Primary enrollment 398,000 567,000 Pupil/teacher ratio 51.1 45 Teachers 7,777 12,600 4,800 4,800- 9,60t 6,850 2,750 230 /2 7,300"- 12,100 6,850 5,250 440 /1 Assuming 2% p.a. loss rate. /2 Assuming 3% p.a. loss rate. /3 Based on output from existing institutions with no reform of secondary education structure. Source: Bank Group staff calculation based on alternative enrollment projections in Annex 5. October 1974  ANNEX 7 RWANDA EDUCATION PROJECT Susmarv of Estimated Project Cost ('000 USj Cost of Building_s___ _ Cost of Physical Total Cost Equipment Facil- Project Itemi Cross Site of Build- (including ities Project Project Estimated Total Ar,a Develop- Coastruc- ings & Site Cost of paper Total 'I'echnical Evalu- Adminis- Cost No, Name _ m_,t tion Development Furniture Cost Assistance ation ration (t1$ 000) Ra ('000) A. Norkahops (150) Area/unit - 176 m2 gross ____ Equipment cost/unit $2,500 26.400 Self-hep__ 1420.0 1.420.0 375.0 375.0 2,170.0 - _ - 2,170.0 195,300.0 Furniture cost/unit $2,500 B. Printshop (i) Physical facilities 846 15.0 150.0 165,0 5.0 300.0 470.0 - - - (ii) Paper supplies - - - - - 1.000.0 1,000.0 - - Sub total 846 15.0 150.0 165.0 5.0 1,300.0 1.470.0 - - 1,470.0 132,300.0 C. Technical Assistance 8 technicians x 4 yrs = 32 man-years Arch. and Proc. Specialist - 10 man-years Printing Specialist e 2 man-years Total = 44 man-years 960.0 - - 960.0 86.400,0 D. Project Evaluation 4 man-years - - _ - - - - - 200.0 - 200.0 18.000,0 E. Project Administration (i) Office building, furniture and equipment 170 - - - - - - - - 45.0 (ii) Vehicles 100.0 (iii) Local salaries, operational expenses and architectural services 255.0 Sub total - - - - - - 400.0 400.0 36,000.0 BeVe ProJect Total Before Contingencies (Sub total A - E) 2416 15,0 1,570.0 1I585-0 380.0 1.675.0 3,640,0 960.0 200.0 400.0 5,200.0 468,000.0 Contingencies (a) Unforeseen events 363.3 19.0 102.5 484.8 48.0 10.0 20.0 562.8 50,652.0 (b) Estimated price increases l, , ,7 4OJ.z 189.0 3,24.3 _291807.0 -, -_- - - 1~~~~~~~~~-- 95 0- 198.5 rPT-1 C-1tfnze^^r-_ I- 95LX _ ___1.950_.0 198.5 902.4 3,050.9 451.2 94.0 209.0 3 805.1 __342 4590 Project Total 3,535.0 578.5 2,577.4 6,690.9 1,411.2 294.0 609.0 9,005.1 810,459.0 Ap,sl 1975  WANDA EDUCATION PROJECT PROECT IMPLEMENTATION SCHEDULE First Year Second Year Third Year Fourth Year Fifth Year Sixth Year Quarter: 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1. Civil works SSS PPP PPP PPP CCC CCC CCC CCC CCC CCC CCC CCC CCC CCC CCC CCC CCC CCC CCC CCC 2. Furniture PPP TTT TTT DDD DDD DDD DDD DDD DDD DD ODD DDD DDD DDD DDD DDD DDD DDD 3. Instructional equiprment TTT TTT DDD DDD DDD DDD ODD DDD DDD ODD DDD DOD ODD DOD DOD ODD DDD 4. Textbooks TTT TTT DDD DDD DDD 5. Printing equipment and paper TTT DDD DDD DDD DDD DDD DDD DDD DDD 6. Vehicles for inspectors and TTT DDD DDD ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd ddd operational expenses 7. Technical assistance eee eee WUU uUW UUU IJUU UUU UUU UUU UUU U WU DuD UD Duut DUD U UD Wu DuD DuD UUU FFF FFF FFF FFF FFF FFF FFF FFF FFF FFF FFF FFF FFF FF1 FFF FFF 8. Project administration eee eee eee eee AAA AAA AAA AAA AAA MAA A AM AAA AAA AAA AAA AAA AAA AAA AAA AAA AAA AAA AAA AAA AAA 9. Project evaluation EEE EEE EEE EEE EEE EEE EEL EEE EEE EEE EEE EEE EEE EEE EEE EEE 1/ Date of effectiveness LEGEND: e Establishment of Unit D Deliver and installation/distribuLtion s Survey of Primary School Buildings to which workshops will be attached d OperatiuLal expense. P Development of Prototype Designs and Specifications for workshops and U Technicai assistance for Unit design for SFCU and printshop building F Unit Field Staff (volunteers) C Construction of Project Institutions with concurrent evaluation A Project administration T Tendering and contract award E Project evaluation Source: Bank Group staff estimates. April 1975  ANNEX 9 RWANDA EDUCATION PROJECT Forecast of Disbursements US$ OOO's Total Quarterly Accumulated Undisbursed Quarter Disbursements Disbursements Balance 1 0 0 8,000 2 5 5 7,995 3 80 85 7,915 4 150 235 7,765 5 470 705 7,295 6 500 1,205 6,795 7 570 1,775 6,225i 8 675 2,450 5,550 9 380 2,830 5,170 10 1430 3,260 64714() 11 370 3,630 4,370 12 290 3,920 4,080 13 390 4,310 3,690 14 510 4,820 3,180 1i .480 5,300 2,700 16 320 5,620 2,380 17 440 6,o60 1,940 18 510 6,570 1,430 19 420 6,990 1,010) 20 320 7,310 690 21 340 7,650 350 22 290 7,940 6C) 23 30 7,970 30 24 10 7,980 20 25 10 7,990 10 26 10 8,000 - j Starting from the date of effectiveness April 1975  RWANDA - EDUCATION ENROLLMENTS 1973/1974 ENROLLMENT AS % GRADE(S) OF AGE GROUP 17-19 ]UNIVERSITY 60 1 ]0.04 16 -10 13_ UNIVERSITY AND 2603 15 POST-SECONDARY 1 26 0.37 14 337 58 13 VII BOYS 282 119 GIRLS 12 VI 606 186 11 927 432 SECONDARY 2 149 10 IV 1060 50] 9 III 1050 613 8 11 1390 792 2.1 7 i 1650 L 917 PRIMARY 6 6 1 - -- ,9 t ~~~~~~24,800 --1s-;,400- 5 1 -- * 27,400 21,200: - 4 34 2~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~~~~~~~~~~~~~~~~~5 40,600 ~~~~~34,30 2 56,00 4870 50,000 40,000 30,000 20,000 10,000 0 10,000 20,000 30,000 40,000 50,000 Sources: Ministry of Education statistics and adjusted 1970 census figures. World Bank-9142 1! This percentage becomes 63 if calculations are based on U.N. population figures.  RWANDA STRUCTURE OF EDUCATION, 1973174 AND PROPOSED REFORMED PRIMARY STRUCTURE Age 7 8 9 10 11 12 13 14 15 16 17 18 19 19 20 21 3/ Classical Humanities - Pri ma ry Education Modern H u man2 ities UnTiversmity Orientation Cycien4V Upper Cycle a Primary Teacher Training 7 /e claryT r Toeimina Primary Education Under Proposed Reform 1/ <-tu ts : _ 5 _ 6 _ _ W 5/ ~~~~~~~~~~~~~Upper Normal Pedagogic Institute {- _ _ ~~ ~ ~~~2/ _ FT 3] {i Hi] ~~~~~~~~Auxiliary Normal Lowver Normal NOTES: :~~~~~~~~~~~~~~~~~ 1/ Secondary preparatory course (to% of students1 stres- Vocatios lal, Technical and 0 ~~~~~21 Termninal primary course (90% of students) stressing Agricultua I I I practical subjects Age 9 10 1 1 12 13 14 _ :2 3 Grades numbered according to Rvvandese system Atiaa Vo-cational and Agricultural 4/ Also referred to as "common trunk" Or 10 11 12 13 14 15 : tsaa { / Entrance after failureh in fijrsatyar of forietaion acyclped the whole structuire of the secondary system will be Technical and Agricuiltural reviewed . / Teachers from this course are mainly employed in the _ C + } < 1 < 1first cycle secondary schools Technical____________________________________________________________ * Examination/Selection Test 6/ Housecraft Training lgirlsi ) o Li 1 I Agricultural & Artisanal Training (boys) World Bank-9143  RWANDA - STRUCTURE OF THE MINISTRY OF EDUCATION 1974 AA,S~~~~~~~OR EDUCATION ROUCARIOPS ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~~~~~N I E71!   I BRD 11275 R 30 ~~~To bho.... a mpIoi MAY 1975 RWANDA EDUCATION PROJECT u G A N D A koitomb Kabote .TANZANIA EOMMUNE EUINDARIES REPUBLIC OF 0NyagatoJ 1 PREFECTURE BOUNDARIES / 7 MA~N ROAM ZIR INTERN/\TfONAL ROLJNDARf-S ........ \.. Bymboi NATIONAL 1 A F R i C h <, X ff | Co <, gf - ,;: . z ~~~~~~~~~~~~- { ~~ 4 (9I<ayonza '-- ............ 2 I~~PA R r AFRICA~~~~~~~~~~~~~~~~~~~~iey L~ ~~~~ jAURNE KILSETE V5 X y aF l/Cj \@ VfX ti vv G E h~~~~~~~~~~~~~~~~~~~~~~2 <Y30i7^ 4 sw0 50 60 70 8 FREPBI C OF IT.~~~~~~~~~~~~~~~~~~~~IA 2' n a5 ''kka,aa 5v th, '2 a WC<zy-< ii d<> vz>><ank