Haiti - Basic Education Project

Document of I The World Bank L LEU3 FOR OFFICIAL USE ONLY Report No. 3752a-HA HAITI STAFF APPRAISAL REPORT BASIC EDUCATION PROJECT (EDUCATION III) November 2, 1982 FILE COPY Projects Department Latin America and the Caribbean Regional Office This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  Currency Equivalent Currency Unit = Gourde (G) US$1.00 = G5 Gl.00 = US$0.20 G1,000 = US$200.00 Weights and Measures km = kilometer (1 km = 0.62 miles) m = meter (1 m = 3.28 feet) m2 = 10.76 ft2 Glossary CARE = Cooperative for American Relief to Everyone CIDA = Canadian International Development Association CONADEP = National Council for Development and Planning DEN = Department of National Education IDB = Inter-American Development Bank INAGHEI = National Institute for Management Administration and Higher International Studies IPN = National Pedagogical Institute ONAAC = National Literacy and Community Action Office PIU = Project Implementation Unit PPF = Project Preparation Facility UNICEF = United Nations Children's Fund USAID = United States Agency for International Development Fiscal Year October 1 - September 30  FOR OFFICIAL USE i .?NLY HAITI APPRAISAL OF A BASIC EDUCATION PROJECT Table of Contents Page No. BASIC DATA .............. i I. INTRODUCTION .. . ....................... I II. ISSUES IN BASIC EDUCATION . . .................................... 2 Overview . .......................................... ... .... 2 Low Enrollment Rates ....................................... 3 Low Efficiency ................................ 5 Low Quality .................................. . ........... 7 Issues in Accountants' Training ..... ........................ 10 III. GOVERNMENT PLANS AND PROGRAMS ....... ........................... 11 Overview .................................................... 11 Five-Year Development Plan and Constraints ................ .. 11 IV. THE PROJECT .................................................... 19 Description of Project Elements ..... ........................ 20 Objective 1: Increase Enrollments and Access ..* ........... 20 Objective 2: Improve Quality ...... ........................ 22 Objective 3: Improve Management . . ......................... 31 V. PROJECT COSTS, FINANCING AND DISBURSEMENTS ................... .. 34 Cost of the Project .. ....................................... 34 Financing and Disbursement Plans ............ ................ 38 Project Administration and Implementation ........ ........... 39 Procurement ................................................. 41 Disbursement ................................................ 42 Accounts and Audit .......................................... 43 VI. BENEFITS AND RISKS .. ...................... . . 43 Benefits . . ................................... 43 Risks ..................................... 44 VII. AGREEMENTS REACHED AND RECOMMENDATION ...... .................... 44 This report is based on the findings of the appraisal mission that visited Haiti in July 1981. The appraisal mission consisted of Ms. J. de Regt (Sociologist, Mission Leader) and Messrs. E. Vergara (Architect), J. Auerhan (UNESCO, Economist) and R. Carneiro (Educator, Consultant). A postappraisal mission consisting of Ms. J. de Regt and Mr. E. Vergara visited Haiti in March 1982. This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  Table of Contents (Continued) Page No. TABLES 2.1 Regional Discrepancies in Enrollments, Total and Rural .... ...... 3 2.2 Number of Schools and Classrooms (1978/79) ...................... 4 2.3 Promotion, Repetition and Dropout Rates for 1977/78, Urban and Rural .............................................. 5 2.4 Efficiency of the Education System .............................. 6 2.5 Supervision Structure (1981/82) ................................. 8 3.1 Comparison of Second and Third Development Plan Targets .... ..... 12 3.2 Comparison of Trends in Enrollment Increases .................... 13 3.3 Curriculum for Grades 1-4 ....................................... 15 3.4 In-Service Teacher Training Sequence ............................ 16 3.5 Proposed Supervision Structure in 1985/86 ....................... 17 4.1 Distribution of Schools ......................................... 22 4.2 Curriculum Experimentation Schedule ............................. 24 4.3 Expected Number of Textbooks, Workbooks and Teacher Guides to be Produced during the Project ............................ 26 4.4 Expected Total and Unit Cost of Textbooks and Workbooks for Grades 1 to 4 and for the Experimental Program for Grades 5 to 7 ........................................... 27 4.5 Training Program and Schedule ................................... 29 4.6 Sources of Technical Assistance ................................. 33 5.1 Project Cost by Project Item .................................... 35 5.2 Project Cost by Type of Expenditure ............................. 36 5.3 Financing Plan .......... ......................................... 38 5.4 Disbursement Schedule ........................................... 39 5.5 Credit Categories, Amounts and Percentages to be Financed ....... 42 ANNEXES 1. Comparative Education Indicators 2. Specifications for Teacher Guides, Textbooks and Workbooks, Grades 1-4 3. Selected Documents and Data Available in the Project File CHARTS 1. Existing and Proposed Education Systems, 1981 2. Organization of the National Education Department 3. Implementation Chart MAP  - i - HAITI BASIC DATA 6-12 Primary School Age Group (1981) 887,400 - 262,700 urban - 624,700 rural Education (1980/81) Enrollments Enrollment Rates Gross % Net % Primary Education 619,800 70 43 Urban 291,000 111 72 Rural 328,800 53 30 Public 148,000 Private 180,800 Teacher Force (1980/81) Primary Level Total 14,900 Urban 7,800 Rural 7,100 Public 2,400 Private 4,700 Student/Teacher Ratio 42 (47 rural) - public 51, private 36 Education Finance (1979/80) Total Expenditure on Education as % of GDP 3.4% Public Expenditure on Education as % of GDP 1.4% Public Expenditure on Education as % of Total Public Expenditure 9.4% Government Budget: -Recurrent G 81.5 million 46.1% -Development G 95.4 million 53.9% -Total G 176.9 million 100.0% Literacy Rate (1980) 23.0%   I. INTRODUCTION 1.01 The Bank Group has supported educational development in Haiti through two education credit (Credit 618-HA, US$5.5 million, February 1976 and Credit 770-HA, US$10 million, February 1978). Since the first involvement in the sector, formal education in Haiti has undergone profound changes, especially in the last four years. In 1978, the two autonomous primary education systems, urban and rural, merged into one under the National Education Department (DEN). Also in 1978, a decree established Creole as the main language of teaching and learning. In 1979, an Organic Law gave the basis for reorganization of DEN. This is gradually being implemented. In March 1982, a new education system was established, consisting of ten years of basic education, divided into three cycles. This new system will be introduced gradually starting in September 1982. 1.02 Credit 618-HA (US$5.5 million, February 1976) financed construc- tion of 75 primary schools/community learning centers in rural and urban areas, three primary teacher training institutions and the revision of the teacher training curriculum. Credit 618-HA was completed by December 31, 1981, about one year behind schedule, due to lack of counterpart funds and construction delays. The lessons drawn thus far from the implementation of Credit 618-HA are: (a) construction of small dispersed rural schools was uneconomical for contractors under normal contracting arrangements; a system of negotiated contracts and direct supervision by the project unit has proved cheaper and more effective; (b) the project acted as a catalyst for major improvements in education and provided support for the gradual modernization of the education system--a process which is continuing. 1.03 Credit 770-HA (US$10 million, February 1978) supports the expan- sion of basic education and secondary vocational, and agricultural train- ing. In addition, the project supports curriculum development for grades 1 to 4 on an experimental basis, teacher training programs, a radio component, and the introduction and implementation of a limited primary education reform. The implementation of Credit 770-HA is satisfactory with regard to the educational aspects: curricula, textbooks and teaching guides, and new teaching techniques in Creole, supported by radio programs, were tested in 1980/81 in some 1,000 classrooms (8% of the total) for grade 1 to 3 on an experimental basis; over 3,000 teachers have been trained in the new curricula and teaching techniques, and the reform of the education system will be introduced gradually to all schools (public and private) in the country. The implementation of the infrastructural components is about 24 months behind schedule due in part to periodic shortage of counterpart funds. A recent change in the Credit Agreement allows the project unit to construct primary schools using a system of negotiated contracts under its direct supervision. With the establishment of a working fund implementa- tion is expected to improve, and the project is expected to be completed by December 1984, one year behind schedule.  - 2 - 1.04 The Government places importance on education, especially basic education, and on skill training, and its comprehensive education reform which will change the education structure for basic education and vocational training at the lower levels shows the intention of the Government to improve the education system. In March 1981 the Government submitted a request to IDA for possible financing of a project which focuses on basic education, the educational reform, and on consolidation of the actions started under the two previous projects. The project request prepared by the Education Department (DEN) formed the basis for IDA appraisal which was carried out by a mission visiting the country in July 1981. Due a reduction in the availability of IDA funds, a post-appraisal was carried out in March 1982 to adjust the size of the project. The proposed basic education project would include IDA financing of US$9 million to assist the Government in carrying out a first phase of three years of a seven year program. Possible future projects would cover subsequent phases. The proposed project would assist the Government in: (a) increasing access to rural primary education in three Departments with the lowest relative participation; (b) improving the quality of primary education offered in rural areas; and (c) assisting in the overall coordination, monitoring and evaluation of the educational reform. In addition, the Government, in 1982, requested the Bank's technical assistance in improving its accounting and auditing procedures. A small technical assistance component to design a comprehensive examination for the accounting profession would be included in the proposed project. 1.05 In September 1981 the Government requested, and IDA approved, the allocation of US$550,000 from the Project Preparation Facility to initiate activities under the proposed third education project. These funds are being used to carry out preparation activities such as school mapping, hiring of staff for curriculum development, training and evaluation, and strengthening of the pedagogical supervision system. These activities are crucial to ensure that the educational reform, which the proposed project would support, could be introduced gradually starting in October 1982. II. ISSUES IN BASIC EDUCATION Overview 2.01 The Haitian education system faces serious problems and con- straints in its aim to provide basic education to its children. Not enough children complete their primary education and many of those who do have inadequate learning results. These problems are particularly acute in the rural areas. They exist because: (a) less than half of rural children go to school; (b) only about 20% of those who do go to school in the rural areas complete six grades; and (c) learning achievements among school leavers are comparatively low. It is important for national development that these issues be solved, but the Government must overcome formidable financial, human and organizational constraints. The lack of resources is particularly acute in the education sector because of the magnitude of the problems. This implies that the problems can only be solved in phases over the long run. The issues, the government plans, and the constraints are discussed in sequence below.  -3- Low Enrollment Rates 2.02 A first problem facing the Hlaitian education system is that less than half of the children go to school, and the participation of those who attend is unequally distributed along the urban/rural continuum, by region and by sex. 2.03 In 1980/81 some 620,000 children were enrolled in primary school. This represented a 70% gross enrollment rate and a 43% net enrollment rate of the 6-12 age group. In rural areas enrollment represented only a 30% net rate. In 1980/81 some 509,300 of the 6-12 year olds, or 57% of the age group, were estimated not to be in school. 2.04 Disparities in participation follow the rural/urban continuum (30% of the relevant age group is enrolled in rural areas versus 72% in urban areas), vary widely among the nine departments of the country, with net enrollment rates varying from 27% (Ouest) to 65% (Nord-Ouest). Rural representation indices ranging from 0.519 (Grand'Anse) to 1.847 (Artibo- nite) (Table 2.1). Girls enroll less frequently than boys: 43% in rural areas and 46% nationally. Enrollments of girls, however, grew at about 1% per year faster than those of boys over the last five years. Table 2.1: REGIONAL DISCREPANCIES IN ENROLLMENTS, TOTAL AND RURAL (6-11 Years Old) Gross Net Rural Enrollment Ratio Enrollment Ratio Representation 1978-79 1978-79 1978-79 1978-79 Department Index Total Rural Total Rural Ouest 0.726 65.6 37.3 50.8 27.3 Nord 1.193 78.4 55.4 59.3 45.2 Nord-Est 0.886 75.7 55.2 55.9 46.2 Nord-Ouest 1.360 97.8 80.9 71.1 64.5 Artibonite 1.847 69.9 49.1 43.5 30.1 Centre 0.810 73.0 51.6 52.0 39.5 Sud-Est 1,571 58.6 50.1 36.9 31.1 Sud 0.794 67.0 44.5 48.9 33.5 Grand'Anse 0.519 58.6 35.3 43.7 28.0 TOTAL 1.000 68.8 43.7 50.0 32.2 Representation Index: The percentage of school enrollment in any given department divided by the percentage of school age population 6-11 years old in that department. Source: DEN 2.05 The overall low and unequal rural primary enrollment rates by region are caused mainly by: (a) the lack of sufficient school places and the dispersed location of existing facilities; (b) the cost of education to the parents; and (c) other socioeconomic factors, such as the need for child labor in the fields and caring for siblings, and the poor health and nutrition of the children.  2.06 There are not sufficient school places available in the country. The table below shows the number of schools and classrooms available in 1979/80. Table 2.2: NUMBER OF SCHOOLS AND CLASSROOMS (1979/1980) Schools Classrooms Total Rural Urban Total Rural Urban Public 958 623 335 4,995 2,232 2,763 Private 2,038 1,176 862 7,676 3,327 4,349 Total 2,996 1,799 1,197 12,671 5,559 7,112 For the 1981/82 school year only 12,700 classrooms are available while 13,500 are needed. The real deficit, however, is larger because at least 30% of public schools and 20% of private schools need replacement or repair. The operation of 30% of public schools in rented, converted houses explains the high percentage of replacement for public schools. Most pri- vate schools are also in houses. In addition, 22% of private schools operate in the open air, without buildings. Schools and settlements are dispersed, often compelling students to walk more than five kilometers one way. This makes it difficult for the physically weaker children to stay in school, particularly under rough weather conditions. 2.07 The cost of education is also a deterrent to enrollment. The annual cost to a family per child for public schools was G90, or US$19 in 1979/80; this included school fees, uniforms, learning aids and books. The annual cost for private education is about the same in the rural areas, but higher in the urban areas. These costs frequently constitute an excessive burden for rural families. The average annual income per family in rural areas is about G765 (1980 estimate). The expense of the family for the education of one child thus represents 11% of the average income, and 22% with two children in the primary school age. Two to four percent would be considered normal in most countries. In addition, there is the opportunity cost of sending children to school; even young children can make a substantial contribution to the operation of the household by caring for siblings, working in the fields or selling newspapers in the streets. Finally, 75% of school age children suffer from protein-calorie deficiencies. In 1979/80 a study showed that of children enrolled in schools, 41% received only one meal at home, 38% two meals; and that the nutritional status of six-year-olds was 80% of the optimal, dropping to 60% for the seven-year-olds. 2.08 Low participation in the education system with its resulting low levels of literacy influences the economic development of a country. Higher literacy rates are linked to better health status, higher life expectancy, lower child mortality and economic growth. An increase in lit- eracy rates of 20% would increase GDP growth by 0.5% according to worldwide comparative studies. 1/ For the individual access to basic education opens an avenue to better jobs and higher earnings. 1/ Norman Hicks: Economic Growth and Human Resources. World Bank Staff Working Paper No. 408, 1980.  - 5 - 2.09 The long-term solution to the problem of low enrollment rates is to increase enrollments quickly, especially in rural areas. However, the government can not afford such dramatic steps, so the short-term solution should be to increase enrollment rates selectively by focusing the limited government resources on the most disadvantaged areas. Low Efficiency 2.10 The second major problem facing the Haitian education system is that not enough children who enter school complete the primary cycle. The internal efficiency of student continuation is low; for instance, the com- pletion rate for the cohort entering school in 1978/79 would be, based on historical coefficients, 47% in urban areas, 20% in rural areas. Most children stay in the lowest grades due to high repetition and dropout rates. In the rural areas some 59% of the students were in the pre- school 2/ and first grade compared to 43% in the first two grades in urban areas in 1980/81. The urban repetition rate and dropout rate is consist- ently lower per grade than the rural one (Table 2.3). Both rates are sub- stantially higher for the lower grades. In fact, 59% of the urban students and 76% of the rural students drop out before they can be expected to have attained full literacy (i.e., after grade 4). Table 2.3: PROMOTION, REPETITION AND DROPOUT RATES FOR 1977/78, URBAN AND RURAL (Percentage of Students Enrolled) Grade Rural Preschool 2/ 1 2 3 4 5 6 Promotion Rate 30 56 67 60 66 73 80 Repetition Rate 34 31 27 27 26 21 14 Dropout Rate 36 13 6 13 8 6 5 Urban Promotion Rate -- 67 69 68 68 85 84 Repetition Rate -- 19 19 21 21 15 7 Dropout Rate -- 14 12 11 11 (-)3 9 2.11 Because of frequent repetition and starting school at a late age, 39% of children are overage i.e., more than 1 year older than the legal age corresponding to that grade. The legal primary school age is from 6 to 12 years. At present, 34.5% of the students are 12 years and older. Only 26% in the urban areas, 13% in the rural areas, pass through primary school without repeating one grade; 22% (urban) and 39% (rural) repeated three years or more. 2.12 The inefficiency of the system has multiple causes, some of which overlap with those indicated in para. 2.05. The undernourishment and mal- nourishment caused by poverty is a major determinant of low retention. 2/ In 1978, the two separate school systems, urban and rural, were officially united. The rural system consisted of 7 years of education, starting with a preschool year focussing on school readiness (interalia teaching of rudimentary French). Many rural private schools still have this preschool year.  - 6 - Studies show that even mild to moderate, but chronic, malnutrition affects cognitive development independent of other conditioning variables. Added to this condition of the child, are the conditions in which the child receives his or her education, for instance, overcrowded classrooms (95 children per classroom is not uncommon in rural areas), teachers teaching multiple grades per classroom without being adequately prepared for multi- grade teaching. Also, present curricula and teaching methods do not take into account the great number of overage students who have different inter- ests and learning abilities than the regular age group students. All stu- dents follow the same program because teachers are not trained in the tech- nique of grouping by age or ability level and providing different indivi- dualized or group programs. In addition, students may enter school at any date during the year, making consistent progress in learning difficult to plan. Lastly, students are taught in French and teachers evaluate students to be ready to pass to the next grade based on their mastery of French. This factor by itself explains most of the crowding at the lower levels. 2.13 The consequences of low efficiency are above all a wastage of resources. Table 2.4 shows the costs of inefficiency: 20 student-years to produce one graduate in the rural areas, 15 student-years in the urban public schools, but only 7 student-years in urban private schools. The urban private schools are about three times as efficient as the rural schools in producing graduates. The total resources wasted on the 1978/79 cohort are about US$340,000, about US$200,000 by the Government and about US$140,000 by the parents. The Government waste would pay the salaries of an additional 167 teachers, or give access to schools to an additional 8,000 children. Another consequence is the psychological conditioning that children receive because they always fail. This results in low self-esteem and low achievement motivation. Table 2.4: EFFICIENCY OF THE EDUCATION SYSTEM /a 1978/79 cohort Student- Years Years Number Input/ Student-Years of Invested in of Student-Years Output Wasted Study Cohort Graduates per Graduate Ratio Number % (1) (2) (3) (4) (5) (6) Rural 7 4,058 202 20.1 2.87 2,644 65.1 Urban-Public 6 4,784 314 15.2 2.54 2,900 60.6 Urban-Private 6 4,617 660 7.0 1.16 657 14.2 Note: (4) = Total number of student-years invested, divided by number of graduates [(2) : (3)]. (5) = (4) : (1). (6) = (2) - [(a) X (3)]. /a Source: Department of Planning, Aspects Quantitifs de l'Education en Haiti, 1978/79, May 1980.  -7- 2.14 To improve the efficiency, measures could be introduced such as more discipline regarding school dates, number of days and hours, automatic promotion, grouping of students by age and an accelerated program for the overaged, as well as a better quality package for the normal student. Data from preschool nutrition centers constructed by CARE next to the schools built under Credit 618-HA show that 87% of the children who participated in the one-year preschool nutrition program were promoted from grade 1 to grade 2 versus 37% of the nonparticipants. This success may be due to better school readiness, as well as better nutrition status. Low Quality 2.15 The third problem facing the Haitian education system is that the cognitive achievements of students who complete primary education are low. Low learning achievements are evident, but there are no reliable indicators of how much students learn. However, achievement can be measured and compared with other countries in an indirect way by measuring inputs. The low or inadequate inputs described below all indicate a low quality educa- tion system, which cannot but produce low results. The inputs reviewed are: funds spent per student, teacher qualifications, teacher supervision, relevance of the curriculum and of the language of instruction, and the availability of learning materials and physical facilities. 2.16 The funds spent per student are low compared with other coun- tries, e.g., in 1979/80 the unit cost per primary student was US$55, or 19% of the per capita GDP. Of this, the parents' contribution, US$19, went for uniforms, tuition and textbooks. The Government's expenditure (US$36, or 13% of per capita GDP) was almost entirely spent on teacher salaries and little remains for classroom supplies or teaching aids. Most classrooms do not have maps, paper, glue, scissors or even a blackboard with chalk. The Government spends US$0.60 per student on these supplies and aids, although the entire tuition, US$2.40 per student, is officially earmarked for this purpose. 2.17 Teachers. In 1980/81 some 14,900 teachers taught primary school--5,500 public; 9,400 private teachers. About 27% of the teachers were considered qualified (graduates of teacher training colleges or equivalent) including 20% in the private sectors and about 40% in the public sector. An additional 19% have completed secondary education-first cycle and could become qualified in equivalency courses. All other teachers need more extensive in-service training. In general, teachers are poorly prepared to teach in rural circumstances, with more than one grade per classroom, overage students and infrequent attendance of students. 2.18 Five years ago only half of the teachers were unqualified, compared with three-fourths at present. This deterioration has resulted from high teacher attrition, estimated at 9-10% per year. Teachers leave their profession for higher paying employment abroad and in the country itself. Public teacher salaries were raised to US$100 per month in 1979, but are still lower than those received by drivers or secretaries in  - 8 - Port-au-Prince. At present, all teachers, regardless of qualifications, earn the same salary, US$100 a month. Private sector teachers earn only US$40 per month on average. It is difficult to recruit qualified teachers to go to rural areas, as most teacher training colleges are in urban areas. 2.19 Supervision of teachers, providing them with pedagogical support, is poorly organized. Teachers deal with three levels of supervision: in- spectors at the district or zonal level, pedagogical advisors attached to Regional Pedagogical Centers, and their directors in the schools, as shown in Table 2.5. The three levels are not integrated, nor are tasks clearly delineated by level. Directors and inspectors are not properly trained to provide pedagogical support; they deal mostly with administrative and stat- istical matters. The inspectors' mobility is limited by lack of transport and travel budget. IPN's parallel structure of 19 Regional Pedagogical Centers with some 100 pedagogical advisors attempts to fill the void of pedagogical assistance to teachers. The advisors, qualified teachers with several years of experience and trained in a 10-month course in supervi- sion, form a corps of well-motivated and well-trained professionals. With curriculum experiments under way since 1978, they have had little time to devote to regular pedagogical assistance, and they also lack transport. Advisors spend about 50% of their time giving teacher in-service training courses and 50% supervising the introduction of the experimental curric- ulum. This year, 1981/82, the advisors are being freed from some of these tasks. The teacher training colleges now provide in-service teacher train- ing, and IPN is experimenting with intensive supervision of fewer class- rooms in the experimental curriculum. Generally, however, a rural school teacher does not receive pedagogical supervision. Table 2.5: SUPERVISION STRUCTURE (1981/1982) Administrative Supervision Collection of School Statistics Pedagogical Supervision Level No. Level No. DEN: Primary Education Dept. IPN Department Inspectors 9 Regional Pedagogical Centers 19 Zonal Inspectors 24 With Pedagogical Advisors 100 District Inspectors 59 Directors 3,000 -Average 154 teachers per inspector -Average 127 teacher per advisor 2.20 Curriculum. The present primary school curriculum is a copy of the early twentieth century French curriculum, using the same textbooks and teaching techniques of one-way classical exposition by the teacher to passive students. Memorization is the key factor in school learning and students' evaluation. This French curriculum is geared toward the elite  - 9 - who fulfill the academic requirements to go on to secondary and university level education. The premise of academic progression and the materials presented based on French circumstances are alien to the Haitian world, esptcially in the rural areas. In Haiti, where few children have the means and opportunity to pursue academic careers, education needs to be presented in such a way as to be useful to children who may never have more than two to four years of schooling. 2.21 Language. Creole and French are the national languages in Haiti, with French the official language. Virtually all the population speaks Creole, about 20% are able to speak and write French, but only 5% use French almost exclusively. All education has been in the French medium. The use of French as the only language of teaching imposes on the rural child a further learning and emotional barrier. The gap between the class- room (francophone environment) and the home (creolophone environment) gen- erates a duality in the early childhood experience negative to balanced intellectual and affective development process. Creole should be used in any new curriculum. 2.22 Learning Materials. Learning materials, including textbooks, notebooks and pencils, are to be purchased by the parents. These costs often exceed the limited financial means of parents in rural areas. At present, only one in four rural students owns a textbook. The average cost is US$1-2 per book, or US$6-8 per grade per student. Textbooks produced and distributed by the private sector are mostly in French and have remained unchanged for years: some first editions, dating back to 1932, are still in use. Missions or other private organizations have produced materials in Creole for use in their schools. 2.23 Physical Facilities. In most rural areas, schools are dilapi- dated and not maintained to the point where they disturb teaching. For example, in 1976/77 about 60% of the students had no desks or chairs. Even in urban areas in 1978, 45% of public schools had no blackboards. Class- rooms also tend to be overcrowded. The average number of children per classroom approaches 100 in public primary schools and 50 in private schools (1978/79). The rural student/teacher ratio in public schools is 80:1 vs. 37:1 for urban areas (1978/79). 2.24 The situation described above is especially discriminatory for rural poorer regions, thereby losing a great potential in human resources. As farming families, their limited--or lack of--literacy hinders their ability to use information to improve their productivity or health. As entrants to the urban labor force, their incomplete basic education limits their ability to receive further instruction in vocational skills or pursue further education to enhance their upward mobility. Low efficiency and low quality now result in limiting rural youthst chances for upward mobility, for example in giving access to secondary schools in urban areas, because, with the exception of four agricultural (grades 7-9) schools, there are no opportunities for education beyond grade 6 in rural areas.  - 10 - 2.25 The solution to the problem of low and unequal participation lies in correcting the imbalances by concentrating government investments in the disadvantaged rural areas, especially in those with the lowest representa- tion indices. Based on a school mapping exercise, facilities should be distributed to those areas which have the least access to schools. Any expansion of the system, however, should be accompanied by improvements in efficiency and quality. Issues in Accountants' Training 2.26 One of the weak links in modernizing the Government's bureaucracy is the unavailability of well-trained professionals. This is particularly so with the accounting profession, because the rate at which modern finan- cial management can be introduced is constrained by the availability of well-trained accountants and bookkeepers. The lack of these professionals perpetuates the use of an antiquated and elaborate check and balance system for financial transactions. This particularly influences the rate and level at which, e.g., disbursement requests for IDA-financed projects are prepared. 2.27 Training for accountants is currently being provided at three levels: (a) university training of full-time student at the National Insti- tute for Management Administration and International Higher Studies (INAGHEI), a unit of the University of Haiti. This pro- gram is intended to produce graduate accountants who would receive automatic accreditation from a professional body esta- blished by law in 1981; (b) university training of part-time students at INAGHEI, designed to grant diplomas to persons who have several years of on-the-job experience in accounting; and (c) vocational training by approximately 30 private commercial schools. 2.28 INAGHEI has been receiving technical assistance from CIDA in- cluding two advisers who assist in teaching and curriculum development, as well as the provision of short-term teaching support by the University of Ottawa. These activities have made a substantial contribution to the deve- lopment of professional training; at their current level, however, they are insufficient to cope with the increased number of students moving into the more advanced subjects. Physical facilities are strained and the existing library is particularly inadequate. CIDA is currently evaluating its assistance to INAGHEI and it is hoped that the project will be extended and appropriately strengthened. 2.29 The quality of the training offered by the private commercial schools varies widely. Some of the schools are generally regarded as being superior, and their graduates, consequently, have better chances of obtaining employment. There is no minimum required curriculum and only nominal regulation by DEN. Many of the schools are oriented towards preparing students for careers abroad; they conduct classes in English,  - 11 - using foreign textbooks. Despite some negative features, the commercial schools are providing a badly needed form of instruction at no cost to the Government. They are, therefore, a potentially important segment of Haiti's educational system. In order to realize this potential without reducing the incentive for private initiative, it is recommended that the Government administer an examination (on a voluntary basis) to graduates of commercial schools. This would provide a common standard of quality which prospective employers (including the Government) now lack when considering commercial school graduates. 2.30 The existence of a standard curriculum for the examination would encourage the weaker schools to strengthen their offerings, so as to achieve a higher success ratio among their students in taking it. Over time, some weaker schools can be expected to disappear, making it possible for the better ones to achieve economies in the use of scarce teachers. The examination should also improve the efficiency of INAGHEI. At present, the institute cannot rely on commercial school training and puts all students through the same introductory courses. Once the examination is instituted, successful commercial school graduates could be given appropriate credit for pre-university training; this would reduce the pressure on INAGHEI's teaching staff and physical facilities, which is greatest at the preparatory level. III. GOVERNMENT PLANS AND PROGRAMS Overview 3.01 Over the last three years, formal education in Haiti has under- gone a profound change. In 1978, the two autonomous primary education systems (urban and rural) merged into one under DEN. A decree established Creole as the main language of teaching and learning. A review of the primary school curriculum was started to develop a curriculum responsive to the socioeconomic and cultural challenges of the Haitian society. In 1979 an Organic Law gave the basis for reorganization of DEN, which is gradually being implemented. In March 1982, a new education system was established consisting of ten years of basic education. The next five years (1982-86) will be crucial in consolidating and extending the changes already under way. Five-Year Development Plan and Constraints 3.02 The Government plans for the next five years are ambitious. During the Third Five-Year Development Plan (1981/82-1985/86), the Government plans to carry out three major undertakings: (a) to increase the gross enrollment rate from 70% to 83% by 1983, an increase in 168,500 student places, and to increase the gross enrollment rate in rural areas from 54% to 71% by 1987, or by 128,500 student places;  - 12 - (b) to implement gradually the reform of the educational structure starting in October 1982; (c) to modernize education administration through: (i) reorganization of the central structures of DEN; and (ii) decentralization and regionalization of tasks, functions and responsibilities. These three undertakings are important and necessary steps in the process of adapting the education system to requirements of the present society. 4 But the Government is faced with financial, human and managerial con- straints which are difficult to overcome. The timetable for reaching the targets may well have to be extended. 3.03 Increase in Enrollments. In order to introduce 10 years of basic education to all Haitian children by the year 2000, the Government plans to increase enrollments by about 5% per year, or about 34,000 new students per year. This is higher than the target for the last five years (22,300 stu- dents per year) and considerably higher than the achievements (about 13,600 students per year). Table 3.1: COMPARISON OF SECOND AND THIRD DEVELOPMENT PLAN TARGETS WITH 1978/79 DATA II Development III Development Increase in Primary Actual Plan Plan Targets Enrollments 1975/76-1978/79 1975/76-1980/81 1981/82-1985186 TOTAL 40,676 111,539 168,500 (of which:) Urban 12,008 63,126 40,000 Rural 28,668 48,413 128,500 Public 13,875 (34%) 70,869 (64%) 66,900 (40%) % Public in total primary enrollment 50.5 58.1 45.0 3.04 In percentage annual growth, rather than absolute numbers, it is clear that it was the public sector performance with 1.7% annual growth rather than the 5.1% foreseen which caused the shortfall. The public sec- tor lacked funds to construct additional urban schools and pay additional teacher salaries.  - 13 - Table 3.2: COMPARISON OF TRENDS IN ENROLLMENT INCREASES III Development Plan Actual II Development Plan Targets 1975/76 - 1978/79 1975/76 - 1980/81 1981/82 - 1985/86 % Annual 4.0 4.0 7.0 increase rural primary enroll- ments, public & private % Annual 1.5 5.5 3.0 increase urban primary enroll- ments, public & private % Annual 1.7 5.1 5.0 increase public primary enrollments 3.05 In view of the performance under the Second Development Plan, the targets for-the Third Development Plan are unrealistically high. It is unlikely that the public sector could reach these targets, because the public sector budgets, both development and recurrent, are likely to be lower than expected by DEN, and DEN is unlikely to have the capacity to implement the expansion foreseen. In addition, the growth of the private sector is unpredictable. 3.06 DEN's share of the public sector budget is likely to be lower than the one foreseen by DEN for the next five years. First, DEN expects 80% of its development budget of US$100 million to come from foreign re- sources, which are not yet committed. If resources were assured, DEN's proposed allocation to primary education (60%) and to expansion of the sys- tem (80%) would ensure adequate availability of funds for expansion of the primary education system. Second, the recurrent budget is likely to be lower than that foreseen by DEN. DEN expects the education sector's share to increase from 15% to 22%, while the Department of Planning assumes a decrease in education's share. The rate of increase determines the number of new teachers that can be paid (teacher salaries form 95% of the budget), and this, in turn, determines the rate of enrollment increases. Given the Department of Planning's less optimistic projection, certainly for the first three years, DEN's projected enrollment growth is unlikely to be reached. 3.07 Based on projected enrollment increases and a replacement rate of 9% annually, DEN plans to construct about 2,500 new classrooms. It expects the private sector to build an additional 3,700 new classrooms, mostly in urban areas. However, with the existing implementation capacity, an estimated 1,400 classrooms (400 urban and 1,000 rural) seem the maximum feasible for the Plan period. There are no assurances, or government incentives, that the private sector will actually build these classrooms.  - 14 - 3.08 Lastly, the performance of the private sector is unpredictable. In its projections, DEN assumes a private sector growth of 6.5%, lower than that in previous years (about 9%). However, the urban private sector's growth responds to parents' demand, and in the present economic circum- stances that may slacken. In rural areas, where many private schools are funded through foreign charitable or community sources, growth patterns are unpredictable. DEN, through its policy of treating rural private schools as public schools in the educational reform, may provide a stimulus to the rural private sector. No government incentive is expected for the urban sector. 3.09 Education Reform. The Government plans to introduce the new educational structure gradually over a period of 3 years, starting with 40% of the grade 1 classes in October 1982. This educational reform was prepared during the last three years by DEN and IPN staff, the Curriculum Committee 3/ and UNESCO technical assistance. Experimentation with some of its features was financed under Credit 770-HA. The educational reform as it now stands has grown out of the deliberations and experiments conducted over the last several years. It was not clear from the outset that it would lead to a major restructuring of the whole education system. 3.10 The education reform consists of the introduction of a new school structure comprising ten years of basic education in three cycles (4+3+3) followed by three years of secondary education (Chart 1 compares the exist- ing and new systems). In addition to structural changes, the education reform features the following points: (a) new curricula and syllabi; (b) new teaching methods; (c) introduction of the "Teacher Charter"; (d) automatic promotion from grades 1 to 2 and 3 to 4; and (e) improved school supervision and inspection. The restructuring of the system and dividing the ten years of basic education in three cycles is an important step forward towards the goal of providing education for all. In this system children who abandon school after four years will have finished a self-contained education package. Research has shown that permanent literacy can be achieved with four years of basic education. In addition, the reform features qualitative improvements. 3.11 New curricula and syllabi have been developed for grades 1 to 3 and are in various stages of being tested. Curriculum objectives and con- tent for grades 1 to 4 have been agreed upon. Objectives for grades 5 to 7 will be established later. The new curriculum differs from the old in that it is taught in Creole, includes 3 months of schoolreadiness skills in the first grade, and has only four subjects: reading, writing, mathematics and environmental sciences. The latter are geared toward learning through observation of the natural and social environment. 3/ An independent advisory body of education professionals set up under Credit 618-HA to establish guidelines for curriculum development.  - 15 - Table 3.3: CURRICULUM FOR GRADES 1-4 Reading* Writing* Math. Environ. Sciences Grade 1 Schoolreadiness Training (3 months) x x x x Grade 2 x x x x Grade 3 x x x x Grade 4 x x x x * Reading and writing would be in Creole; oral French would be introduced in grade 1, written French only from grade 3 on. 3.12 The new syllabi, textbooks, workbooks, teacher guides and teacher aids would be developed by the Government (IPN's Curriculum and Educational Materials Unit). These and some existing materials which have been reviewed by the Curriculum Committee and DEN and which are consistent with the objectives would be the only materials allowed for use in both public and private schools. The Government wants to ensure that eventually all classrooms have teacher guides, teaching aids, texts and workbooks for the children. However, it would provide only the teacher guides and teaching aids to all public and rural private schools. Urban private schools would have to buy these materials themselves. Parents would have to purchase the texts and workbooks for their children from commercial channels. At present, books are often too expensive for parents (para. 2.24); therefore, the Government wants to ensure that better and cheaper texts and workbooks are for sale. It would ensure this by: (a) developing the materials without charging royalties or author fees; (b) limiting IPN to strict specifications on length, colors, etc.; (c) developing prototypes, to the point where private industry needs only to print them; and (d) ensuring a maximum price. After three years, the Government would allow the private sector to develop competitive materials or to adapt IPN's materials. All new texts would be reviewed by DEN and approved for consistency with curriculum objectives. 3.13 The teaching innovations under the reform program would consist of: (a) use of Creole as language of instruction in grades 1 to 4; (b) a teacher staying with a cohort for two years; (c) grouping children in classrooms according to levels of ability; (d) evaluating children by intermediate trimestral objectives and moving them accordingly among groups; and (e) increasing participation of children, utilizing their individual experiences and capabilities, discovery learning rather than memorization. All teachers would be trained in these innovations and the curricula.  - 16 - 3.14 In November 1981, the DEN issued a new training policy with a view to preparing all teachers involved in the reform. The new policy introduces a sequence of teacher upgrading courses to be linked to increased responsibilities and salary differentials. To free the pedago- gical advisors (para. 2.21), it makes the teacher training colleges, rather than the regional pedagogical centers, responsible for teacher training; and it introduces a role for educational radio. From September 1981 on, this dual objective of training for the reform and teacher upgrading would be met by training teachers in eight-week (240 hours) courses followed by one year of training through radio broadcasts (30 hours/year) (Table 3.4). Table 3.4: IN-SERVICE TEACHER TRAINING SEQUENCE No. Hours Training Radio Result Allowed to Teach Phase 1 240 hours 30 hours "Title" received Grades 1, 2 Phase 2 240 hours 30 hours Certificate Grades 1-4 Phase 3 240 hours 20 hours Teacher Training Grades 1-7 College equivalency After three phases, a teacher would receive the equivalent of a diploma of attendance at a teacher training college. This teacher training sequence has started in February 1982. Faculty of teacher training colleges who provide the in-service teacher training courses were trained by IPN staff in December 1981 under Credit 770-HA. 3.15 A draft Teacher Charter spelling out a career path and salary levels differentiated by years of service and qualifications has been pre- pared, financed under Credit 618-HA. As a first step towards its implemen- tation, a 1981 survey was made of all public teachers, identifying level of qualification, pedagogical experience, family size, etc. As a second step, the Administrative Committee on Civil Service approved the Charter in March 1982. In September 1982, a Civil Service Charter was established, includ- ing teachers as civil servants. The need for a special Teacher Charter is thereby removed, however the proposals to modify the remuneration and grading would still be valid. A study of the financial implications of the Charter's recommendations, financed under Cr. 770-HA, has been completed. In view of government financial constraints, the salary proposals would probably have to be phased in over a five-year period. However, the estab- lishment of a legal basis for the profession and even modest modifications of the salary structure, are important steps forward in attracting new staff to the profession, improving the morale of existing staff and motivating them to undertake the changes so important to the successful implementation of the eductional reform. 3.16 The efficiency of the system is supposed to be improved by intro- ducing automatic promotion between grades 1 and 2 and between grades 3 and 4. During a period of two years, children would be able to move at their own pace in achieving the objectives set for grade 2 and grade 4. Children would be grouped according to ability and each trimester the teacher would reorganize groups as necessary. DEN predicts an average of only 20% fail- ure at the end of such a two-year period, compared with 63% in rural areas at present. 3.17 In the future, the supervision system (para. 2.19) would inte- grate inspection and pedagogical functions of supervision. This would only be possible, however, when the education reform is fully implemented in 1993. The advisors could then turn to routine supervision instead of supervision of experimental programs.  - 17 - Table 3.5: PROPOSED SUPERVISION STRUCTURE IN 1985/86 Regions (9) Pedagogical Section: Chief of Pedagogical Training-9 Chief of Primary Inspection-9 Districts (90) /a Inspectors (with 3 Pedagogical and Administrative Deputy Inspectors for Supervision Primary Education) Regional Peda- With 5-6 advisors each Pedagogical Supervision gogical Centers (35) /a Directors Pedagogical/Administrative Supervision /a Regional Centers would gradually become district offices, and advisors and inspectors would have the same training and functions. 3.18 For 1981/82, under Credit 770-HA, all directors and all inspec- tors would be trained for one month by IPN in pedagogical supervision tech- niques; and new inspectors are already receiving the same pre-service training as pedagogical advisors. The advisors' time for supervision would increase (para 2.21), although during 1981/82 the advisors would still be responsible for training the directors. 3.19 The constraints on reaching the educational reform objectives are mostly human and managerial, although financial constraints may also develop. The success of the reform depends on the teachers and to some extent on the inputs teachers receive. These teachers are mostly unquali- fied and not financially motivated (paras. 2.19 and 2.20). Thus, even though they would be trained and better supervised, it adds particular difficulties to implement the new curriculum and teaching innovations successfully. 3.20 The teachers' success, in part, will be determined by timely delivery of inputs, e.g., training, supervision, materials, and efficient management of reform preparation. The reform preparation and implementa- tion plans had no built-in time contingencies. They were, in fact, set up as high priority emergency type programs in each unit, with only loose coordination between the units. With the establishment of the Reform Coor- dination Committee in September 1981 (with PPF financing under the proposed project, para. 1.05), responsibility was assigned for the first time for the overall management of reform preparation and implementation. Since that time, the Reform Coordination Committee in coordination with the Curriculum Committee has established a tight work program and review procedures. The Curriculum Committee and DEN's Planning Department have now taken over the responsibility for monitoring the reform preparation and implementation. Commitment of staff at the central level is high, yet it is optimistic to expect a full commitment to the reform from staff at all levels because of low civil servant salaries and low management capacity at all levels.  - 18 - 3.21 Financial constraints may also influence the outcome of the educational reform. The direct costs of the reform represent about 10% of the development budget (US$10.8 million) and should not cause any major problems. The financial implications of introduction of the Teacher Charter on the recurrent budget have been studied, and, given a likely slow growth of DEN's recurrent budget, this element of the reform may have to be phased over a long time period. 3.22 Modernize Education Administration. The Government is in the process of carrying out an administrative reform consisting of a reorgani- zation of DEN and a decentralization of its functions by creating regional departments. The reorganization of DEN, substantially carried out in the fall of 1981, is in accordance with the Organic Law of 1979. This law creates a Department of Education with a new structure and it describes the new functions of all departments and sections. Chart 2 describes the new structure. Under this structure, a Director General was appointed and five functional Departments were created (Planning, Inspection and Pedagogical Assistance, Education, Personnel and Administration). In the old structure, DEN was organized in accordance with the educational structure (e.g., Department for Primary Education), and it lacked functions a modern administration should have, such as having a good data base on the personnel of the sector, or educational planning. IPN, an autonomous institution, was also reorganized, and it consists of four sections under the Study Directorate: training, evaluation, preparation of curricula and education materials and supervision. The formerly independent Educational Radio and Teaching/Learning Materials Unit have also be incorporated in IPN. The reorganizations are taking place in step-by-step fashion, as all participants attempt to reach agreement on the many changes proposed. Although the Organic Law is clear on the functions of each unit in DEN, the blueprint does not exactly fit the existing situation or take into account, for instance, the changes caused by the educational reform going forward simultaneously. Some of IPN's functions in pedagogical supervision and in- service training, for example, would have to go to the Department of Inspection and Pedagogical Assistance. A period of three years, starting October 1981, is foreseen for the introduction of the administrative reform. Budget cuts for 1981/82 have already restricted the amount of new staff that could be hired, although salary levels were raised to attract qualified staff. 3.23 Simultaneously, under the Government's regionalization scheme, DEN would decentralize and create nine regional departments with 10 dis- tricts each. These departments would become responsible for the day-to-day functioning of the education system, while the DEN's central departments would retain policy-making and normative functions. Regionalization is a recent policy; two educational regional departments were created in 1981/ 82. Until the regionalization is complete, in three to four years, a mixture of old and new procedures would be used, and new and existing structures would exist side by side (e.g., district inspectors and regional pedagogical centers). 3.24 To implement this administrative reform, DEN faces serious finan- cial and managerial constraints. The reorganization and regionalization both demand more and qualified staff. With a limited growth in recurrent  - 19 - budgets and other demands on the increase in recurrent budget (e.g., new teachers, Teacher Charter), it might be difficult to recruit enough staff. Recruitment is also difficult because of low public sector salaries (para. 3.20). A general salary increase of 50% to 100% for professional staff and 20% for support staff at the central level in October 1981 should havp improved the situation, yet the total pool of qualified professional staff in Haiti remains small. Many professionals have gone into other careers or gone abroad, where earnings are better and career prospects are more clearly defined. 3.25 The management of the administrative reform lies with DEN's Planning Department, and the reform is being carried out by reaching a collegial consensus within the Ministry of each step. However, the need for simultaneous high outputs from the units to be reorganized, to ensure a successful educational reform, has not been taken into account. Before a reorganization, staff focuses on the day-to-day implications of the reorga- nization for their jobs and positions; afterwards it takes time for a reor- ganized unit to become fully operational again. The simultaneous implemen- tation of two major reforms is likely to slow both. IV. THE PROJECT 4.01 The proposed project would assist the Haitian Government in implementing the educational reform. Implementation of the reform would be a gradual process, starting in 1982 with 40% of the grade 1 classes. The proposed program originally was conceived and appraised as a single project covering the implementation of the reform for grades 1 to 4 and the experimentation for grades 5 to 7, for a period of 4 years starting with nationwide introduction of the reform in 1982. However, in view of budget shortages and constraints in external funding, the nationwide introduction of the reform was rescheduled to a progressive introduction starting with 40% of the grade 1 classrooms in 1982, 70% in 1983 and 100% in 1984. The project was subsequently divided into two phases, broadly as follows: Phase I Phase II 82/83 - 84/85 85/86 - 89/90 Grades: Introduction of reform 1 - 3 4 - 7 Grades: Experimentation 2 - 6 5 - 10 New Classrooms to be Provided 180 360 The following discussion covers the details of Phase I, for which a lending commitment is now sought. It is expected that based on positive results in phase I, external financing would be sought in 1984 for a second phase to continue the reform program to about 1990. The proposed project would assist the Government in implementing a first phase consisting of the first three years of basic education. The project would address three main objectives, namely to improve access, quality and the management of the system. In addition, the project would provide assistance in improving the accountant's training.  - 20 - 4.02 The project would increase enrollments in basic education in three Departments where participation is lowest, mostly in rural areas (para. 2.04)--Sud, Sud-Est, and Grand'Anse) by: (a) distributing the construction of new infrastructure according to the results of a school mapping exercise; (b) providing replacement and new physical facilities and furniture and equipment for grades 1-4 (totaling about 180 classrooms); and (c) constructing and furnishing about 45 teachers' accommodations. 4.03 The project would improve the quality of basic education by: (a) testing and revising curricula for grades 5 and 6, as a continuation of the curricula revision for grades 1 to 4 being carried out under Credit 770-HA (para. 2.21); (b) developing prototype textbooks and workbooks; producing, printing and distributing teacher guides and other teaching materials in accordance with the revised curricula (para. 2.23); and providing textbooks for classrooms use; (c) training and upgrading teachers, school directors, and school supervisors (para. 2.18); and (d) introducing an effective school supervision system (para. 2.20). 4.04 The project would improve and strengthen management by: (a) assisting to set up a Reform Coordination Committee for the purpose of coordinating implementation of the reform (para 3.20); (b) establishing a comprehensive monitoring and evaluation program; and (c) studying the impact of the reform on students' performance and achievements, with particular reference to grades 1-4. Finally, the project would assist in strengthening the accountants' profes- sion by setting up a comprehensive examination. Description of Project Elements Objective 1: Increase Enrollments and Access 4.05 In order to increase access to basic education, the project would finance school construction, the locations of which would be determined by school mapping, as well as teacher housing in the constructed schools. 4.06 School Mapping Exercise (Proposed Outlay: US$0.2 million). The school mapping exercise started under Credit 770-HA and would be completed under the proposed project. The objective of this component would be to  - 21 - determine the precise location for the project schools to be built in the three Departments included in the project: Sud, Sud-Est and Grand'Anse. Selection of the three project departments was made in accordance with three basic principles: (a) to reduce existing inequalities in rural parti- cipation rates (Table 2.1); (b) to complement actions financed under Cre- dits 618-HA and 770-HA; and (c) to provide assistance in geographic areas struck by recent hurricanes. Staff were appointed in September 1981. The school location study started in October 1981 with funds from Credit 770-HA, is being carried on with funds from the Project Preparation Facility (para. 1.05) and would be completed by October 1983 under the proposed project. The project would finance staff salaries, operational costs, printing, data processing and 12 staff-months of technical assis- tance. The study would consist of an inventory of existing facilities, collection of demographic data, surveys of the topographical situation in the field, and interviews with teachers and parents. The school mapping would provide necessary information allowing for efficient organization of a variable number of four-classroom schools around a seven-classroom central school, thus increasing opportunity of access to any level of primary education for school-age children in rural areas. Criteria for school location were agreed upon with the Borrower during the appraisal mission. 4/ During negotiations, the Government gave assurances that decisions on the location of project schools would be made on the basis of criteria acceptable to the Association. 4.07 Physical Facilities (Proposed Outlay: US$2.7 million). In order to provide better access, the project would construct about 45 schools,the exact location to be determined after completion of the school mapping exercise. The schools would each accommodate 200 students in grades 1-4 with four teachers. Housing facilities for four teachers would be provided in all 45 schools. 4/ The school location criteria are: A. For four classroom schools: 1. Minimum population density of 1,000 in an area of 28 km2. 2. Maximum distance students should walk between home and school 3 km. 3. Year-round access. 4. Maximum class size of 50. B. For seven classroom schools: 1. Minimum population density of about 1,400, but with minimum of 25 students in grades 5, 6 and 7. 2. Maximum distance 3 km. for each of first cycle students, 5 km. for second cycle. 3. Year-round access. 4. Maximum class size of 50.  - 22 - 4.08 The project would finance the construction, furnishing and equip- ping of these schools with a total of about 180 classrooms. About half would replace existing unsatisfactory facilites (para. 2.06); the other half would expand school places at the primary level (grades 1-4). The proposed geographic distribution of these facilites reflects the replace- ment need in Grand'Anse following the hurricane, and the relatively better position of Sud-Est compared with the others. The tentative distribution of the facilities to be provided would be as follows: Table 4.1: DISTRIBUTION OF SCHOOLS Schools Teacher Housing Classrooms Student Places Region New Repl. Total Total Of Which New Sud-Est 10 10 20 20 40 2,000 1,000 Sud 13 13 28 24 52 2,600 1,400 Grand'Anse 22 22 44 44 88 4,400 2,200 45 45 92 88 180 9,000 4,600 The total number of classrooms to be built would meet about 8% of the overall national requirements for new classrooms and 6% of the overall requirements for replacements as identified in the Third Development Plan. However, in each of the Departments the number of classrooms represents the following proportions of total needs: 22% in Sud-Est; 14% in Sud; and 28% in Grand'Anse. Expansion beyond these numbers is not considered financially feasible in the near term (para. 3.06). 4.09 In view of positive experiences in the previous two projects, housing for teachers would be included in all 45 schools. By providing economical housing for teachers in schools located in remote villages under Credit 618-HA, the operation of schools substantially improved because attendance of teachers became regular. In addition, housing serves as an incentive for attracting better teachers for small communities. Housing would, however, be simpler than in previous projects. Since most teachers leave their families in more urban settings and only live at the school during weekdays, a one-classroom module would be constructed wich would serve as simple sleeping quarters for four teachers, but could also be converted to a classroom if there is no need for teacher housing. A systematic analysis of the performance of teachers who benefit from housing facilities has been included in the proposed school mapping exercise. Objective 2: Improve Quality 4.10 The educational reform focuses on the improvement of quality. In order to facilitate the implementation of the reform, the project would finance curriculum development, teaching materials, training programs, and improvement of the supervision system.  - 23 - 4.11 Curriculum Development (Proposed Outlay: US$0.4 million). Introduction of a new curriculum (para. 3.11) is the core of the educa- tional reform. To help ensure its proper implementation, the project would finance: (a) 100% of the salaries for 18 technical staff for the IPN Curri- culum Unit. The staff would receive limited contracts of three years; (b) 24 staff-months of local specialist services in curriculum theory, development and content; (c) twenty-one staff months of international technical assistance in curriculum development; and (d) three staff-months of international technical assistance in health, nutrition and population education. In addition, UNDP would finance technical assistance of about US$0.5 million comprising 52 staff-months of foreign specialist services and 30 staff-months of local specialist services. 4.12 The Government's program for introducing the new curriculum in grades 1 to 3 and developing it for grades 4 to 6 is considered feasible during the project implementation period (1982-85) because procedures for developing, testing and revising the curriculum were established under Credit 770-HA. These same procedures would be applied in the proposed project. Implementation of the curriculum on a nationwide basis would be facilitated by training programs for teachers and supervisors. 4.13 IPN, Curriculum and Educational Materials Unit (para. 3.12), divided into task forces for each subject made up of Haitian staff, would be responsible for this component. These task forces would design content and curriculum materials per grade and would be assisted by French bilateral subject matter specialists. Task forces already exist for the subjects taught in grades 1 to 4; new ones would be established for grades 5 to 7. The Curriculum Committee (para. 3.09) would review the integrated package for consistency with the official objectives and curriculum content. 4.14 The draft curriculum would then be tested during a three-year period, according to the schedule currently in use--namely, starting with 70 classrooms in the first year, extending to 230 and then 600 classrooms. In 1981/82, IPN's regional centers would select one school, and observe one classroom per grade following the experimental curricula for intensive experimentation and almost daily observation. IPN staff and pedagogical advisors in the regional centers would observe other classrooms weekly and discuss problems at monthly meetings with all participating teachers.  - 24 - In addition, the teachers of the experimental classes have all gone through the two months training course and would receive periodic follow-up training days on specific topics. All teachers keep logs with observations. Based on these systematic observations, the curriculum would be revised and then experimented with on a larger scale. From 1982/83 to 1984/85 the following experimental schedule would be implemented, as shown in Table 4.2 below. Also, the IPN Curriculum and Educational Materials Unit would be responsible for conducting experiments with curricula for overage students. During 1981/82 the first grade curriculum would be tested on classes consisting only of overage children; it would be adapted subsequently. Table 4.2: CURRICULUM EXPERIMENTATION SCHEDULE (1982/83 to 1984/85) 1982/83 1983/84 1984/85 Grade 1 Introduction Introduction in 70% Nationwide in 40% of all of all classrooms introduction classooms Grade 2 Extension to Introduction Introduction 600 classrooms in 40% of all in 70% of all classrooms classrooms Grade 3 Experimentation 600 classrooms Introduction 320 classrooms in 40% of all classrooms Grade 4 Pre-experi- 230 classrooms 600 classrooms mentation 70 classrooms Grade 5 Design Content/ 70 classrooms 230 classrooms Materials Grade 6 Design 70 classrooms Grade 7 Design 4.15 The introduction of the reform, starting with about 40% of all grade 1 classrooms in October 1982, and extending it to 70% grade 1 classes by October 1983 and to all grade classes by October 1984, is considered feasible because during 1981/82 under Credit 770-HA about 1,000 teachers for grade 1 received the in-service training course, and about half of the directors were trained in supervision techniques at the regional centers by the pedagogical advisors. From October 1982 on, grade 1 teachers who underwent the basic training several years ago, would be given a refresher course, so that by October 1984 all grade 1 teachers would have received up to date training. From October 1982 on, the pedagogical advisors would be  - 25 - able to devote full time to supervision. For subsequent years, adequate training and supervision programs would ensure introduction on a nationwide basis for the new grades. 4.16 Educational Materials (Proposed Outlay: US$0.8 million), The objective of this component is to provide better and cheaper books to all school children (para. 3.12). Under the proposed project 16 titles would be developed. About 3 million texts and workbooks would be produced and subsequently distributed by private enterprises for sale to some 400,000 in grade 1 to 3 children. In addition, under the project some 175,000 teacher guides and experimental materials would be produced for distribution free of charge to public schools, and some 105,000 textbooks would be purchased for classroom use in grade 1 to 3 (Table 4.3). The project would finance development of textbooks and workbooks, and development, production and distribution of teacher guides and teaching aids. It would finance six staff for the Teaching/Learning Materials Unit in IPN as well as 21 staff-months of international technical assistance. The project would provide 16 staff-months of local consultancy in textbook publishing, specialized staff in administration and editing, the service of typesetting composing the experimental materials, and the cost of distributing the latter. UNDP would finance about 12 staff-months of expatriate specialist services and about 12 staff-months of local specialist services amounting to about US$0.1 million. 4.17 The IPN Curriculum and Educational Materials Unit would be res- ponsible for the first stage of the production process: development and testing of the educational materials during the experimental stages. It would also produce the final version of the materials prior to nationwide introduction. The Teaching/Learning Materials Unit would then be responsi- ble for the development of the manuscripts to prototype stage. At that point private printers would be invited to bid for production and distribu- tion contracts. Inspectors and regional pedagogical centers would be responsible for the distribution of the teacher guides and aids and of the textbooks for classroom use. Textbooks and workbooks would be sold through regular commercial channels, which are well-developed and could serve both the rural and urban markets. 4.18 The textbooks, workbooks and teacher guides would be produced at lower cost than similar materials at present. For instance, under the pro- ject, texts and workbooks would become available at US$2.00-5.00 per grade per child, maximally US$6 during the life of the project, instead of US$6-8 per grade per child charged at present (Table 4.4). This would be possible for four reasons. First, IPN would develop the materials and would not charge author fees or royalties. Second, IPN would adhere to strict specifications developed at appraisal and listed in Annex 2, which would limit the cost of the materials. Third, the Teaching/Learning Materials Unit would develop prototypes for all materials before handing them over to the private sector for printing, thereby eliminating development, e.g., typesetting costs, from the cost of the materials. This unit would also develop teaching aids such as posters, rubber stamps, which would bring down the need for expensive textbooks. For instance, rubber stamps for arithmetic (i.e., rubber stamps with numbers and arithmetic signs) would be  - 26 - Table 4.3: EXPECTED NUMBER OF TEXTBOOKS, WORKBOOKS, AND TEACHER GUIDES TO BE PRODUCED DURING THE PROJECT Regular Requirements /a 1982/83 1983/84 1984/85 Total Grade 1 Textbooks 21,100 14,000 15,200 50,300 Grade 2 Textbooks --- 17,700 24,380 42,080 Grade 3+4 Textbooks --- 12,400 12,400 Grade 3+4 Teacher Guides --- 48,000 48,000 Experimental Program Requirements lb Grade 5 Text/Workbooks --- 23,400 63,000 86,400 Teacher Guides 3,600 9,450 13,050 Grade 6 Text/Workbooks --- --- 23,400 23,400 Teacher Guides --- --- 3,600 3,600 TOTAL 21,100 58,700 199,430 279,230 TOTAL TEXTBOOKS 21,100 55,100 138,380 214,580 TOTAL TEACHER GUIDES --- 3,600 61,050 64,650 /a For distribution to and use in classrooms participating in the reform. /b For distribution to and use in classrooms participating in the experimental curriculum testing program.  - 27 - distributed to all teachers so they could make up worksheets, thereby eliminating the need for an arithmetic workbook in the first two grades. Fourth, the sale price the private sector would be allowed to charge would be subject to a maximum controlled price. The lower prices of the texts and workbooks would mean that parents would be able to buy these more easily for their children than at present. Even now, with high prices, parents often sacrifice other necessities to be able to buy books because education is seen as the avenue for upward mobility. Offering the books at lower prices is expected to increase demand significantly. These prices were tentatively established at appraisal in coordination with the private sector (Table 4.4). During negotiations, the Government agreed to a maximum price of US$6 per student per year, based on the agreed titles and number of books according to agreed specifications. The Government also gave assurances that it would operate a monitoring and control mechanism to enforce the maximum price. Table 4.4: EXPECTED TOTAL AND UNIT COST OF TEXTBOOKS AND WORKBOOKS FOR GRADES 1 TO 4 AND FOR THE EXPERIMENTAL PROGRAM GRADES 5 TO 7 Sale Total Cost Unit Cost Price Per Child US$ US$ Per Grade Grade 1 Textbook Reading 0.50 1.00 --- Workbook Reading/Prelearning 0.40 1.00 2.00 Grade 2 Textbook Reading 0.70 1.40 --- Workbook Reading 0.20 0.60 --- Workbook Environmental Studies 0.25 0.70 2.70 Grade 3 Workbook Reading ) Workbook French ) Workbook Environmental Studies) 0.90 1.90 4.00 * Workbook Arithmethic ) Grade 4 Workbook Reading ) Workbook French ) Workbook Environmental Studies) 0.90 1.90 4.00 * Workbook Arithmetic ) Grades Textbook Reading 0.70 1.40 3 + 4 Textbook French 0.70 1.40 Textbook Environmental Studies 0.70 1.40 Grades 3 + 4 Teacher Guides (8) 2.00 --- Grades Teacher Guides (9) 2.00 --- --- 5,6,7 Text/Workbooks 0.40/0.60 --- Footnote: * The total price per child for grades 3 and 4 is obtained by adding one half of the price of the textbooks for grade 3 and 4, and the workbooks.  - 28 - 4.19 With major private sector involvement, the Government would finance mainly the development costs of new textbooks for the reform. The private sector, consisting of three major companies, has the capacity to undertake printing and distribution and would be responsible for the print- ing and distribution costs. Private firms would be allowed a reasonable profit margin on sales. This arrangement would be attracti-e to the private sector because it would have a reasonably assured market. The Government would already have tested the texts (para. 4.18), and in order to assure the teaching of the new curriculum, they would be the only ones allowed for use in all schools, public or private, for three years. After that the private sector would be able to develop its own materials or to revise IPN's materials. DEN plans to set up a review committee to review all new texts in accordance with the curriculum objectives. 4.20 Classroom use of the books would be facilitated because all teachers would receive training prior to the beginning of the school year on the utilization of the materials, and all urban and rural private teachers would receive teacher guides and teaching aids based on the materials. Urban private schools would have to buy these teacher guides and aids. 4.21 In order to ensure that all children have access to the new materials, eleven copies of each textbook would be placed in each classroom (on average, one per four students). Parents would still have to purchase the workbooks, but having the textbooks available would ease the burden for the poorest families. During negotiations, the Government gave assurances that it would provide by August each year for the duration of the project textbooks in a ratio of one per four students for grades 1 to 3 in the classrooms involved in the education reform. 4.22 Training Programs (Proposed Outlay: US$2.0 million). Success of the reform would depend to a large extent on changes in teacher attitude and in supervision methodology. In order to make such changes, it would be necessary to train all levels of staff. Specifically, teachers would have to be trained in the new curriculum and the use of teaching materials and methodologies; directors and inspectors in supervisory skills; and pedago- gical advisors in new supervisory and teaching methodologies (Table 4.5). In order to assist in implementing the reform, the project would finance: (a) for all participants of traning courses: allowances, materials and transportation costs (Table 4.5); (b) for teacher in-service training courses: salaries of trainers and teacher replacements in public and rural private schools; (c) for IPN: ten staff members, six months of technical assistance, three vehicles and their operational costs; and (d) for the educational radio: 20 staff-months of local consultants, and twelve staff-months of international technical assistance and support for broadcasts, printed materials and training courses for educational radio's teacher training program. Urban private schools would be able to send their teachers to the teacher training courses. They themselves would have to pay for teacher replace- ment, transport and course allowances. UNDP would finance about US$0.2 million of international technical assistance comprised of 26 staff- months of radio experts in production and evaluation.  - 29 - Table 4.5: MAINf PROAMS AND SCEDIE Number of Trainers Course Frequency Dlration Participants Total 1982/83 1983/84 1984/85 Required In-service Qiarterly 2 months Teachers 9,500 - - - About 100 teacher training Faculty of -public 4,450 1,600 1,600 1,250 teaher -private rural 2,170 690 860 620 training -private urban 2,880 910 1,140 830 college Pedagogical Semi- I day Teachers 10,000 1,600 4,000 4,400 All peda- Training Day annually gogical ad- visors & IPN Staff Curriculum Experi- Aunually 2 days Teachers 2,700 900 900 900 mentation Training Inspector Anually 10 montbs Selected 45 15 15 15 IPN staff preservice candidates teaching training advisor pre- service training courses Advisor, in-service Qiarterly 3 days Advisors 460 130 150 180 IPN staff training course, 3 on pedagogy/supervi- sion, 1 on evaluation School Director Semi- 1 day School 10,000 3,000 3,000 4,000 Pedagogical In-service training annually directors Advisors Director 1 nDith New school 930 930 IPN staff training directors NCTE: Figures rounded  - 30 - 4.23 Most training courses already exist; the two-month, in-service teacher training course would be adapted from the existing three-month course, and the radio training courses would be developed and experimented with during 1981/82. Based on an evaluation of the outcomes of the previous year's training program, annual training programs would be adjusted and developed. 4.24 The teacher training courses would take place at the teacher training colleges, which are large enough to handle some 3,200 teachers per year. Three training courses would take place in afternoons during the school year, and one during school vacation. Three faculty members, each earning US$200 per month, would handle a group of about 30 teachers. Teacher training colleges do not operate during afternoons, and this would be a second job for faculty members. 4.25 The radio would broadcast weekly training programs for teachers. School directors would receive training on how to utilize these broadcasts, and each director and teacher would receive questionnaires to determine the broadcasts' effectiveness. During their monthly meeting, radio training would be given by advisors. All programs would be developed by a joint Radio/IPN training team, which has already been formed. 4.26 As a result of the proposed training plan and the training financed under Credit 770-HA during 1981/82, virtually 100% of the participants in the educational reform would be trained in its objectives and content. 4.27 Pedagogical Supervision (Proposed Outlay: US$0.6 million). Success of the reform would depend on close pedagogical supervision of the implementation of the new curriculum. IPN's regional centers would be responsible for this task. The pedagogical advisors would be the key people monitoring the introduction of the reform. The project would finance improvements to the regional centers, enabling the advisors to work more efficiently. Specifically, the project would finance: (a) equipment, furniture and office supplies for the offices and training facilities at the regional centers; and (b) four motorcycles per center and their operational costs and US$30 per month for travel expenses per advisor to enable the advisor to reach outlying schools. 4.28 The functions of the advisors and the regional centers are under- going changes, preparing the centers to play a more effective role in the introduction of the reform. Advisors were freed from giving in-service teacher training courses (para. 3.14), and a new system of supervision of the experimental curriculum (para. 2.20) should also free the advisors for other tasks. 4.29 These changes, together with facilities, vehicles and travel expenses, should improve the advisor's ability to supervise the schools around the centers effectively. As new centers are created, the intensity of supervision would be increased. IPN graduates 25 new advisors a year, a  - 31 - rate wllich would enable it to establish four new regional centers per year. This would gradually increase the intensity of supervision and de- crease the number of teachers each advisor would have to supervise from 127 in 1980/81 to about 100 in 1985/86. Moreover, supervision at the school level would improve as a result of the gradual integration of the inspec- tion and pedagogical supervision system (para. 3.17) and the graduation of 15 inspectors per year trained in supervision. IPN recently created a Pedagogical Supervision Unit, responsible for coordination and control of activities of the Regional Supervision Centers. Monthly work and travel programs for each advisor are required and carefully monitored; e.g., gaso- line allowances are distributed in the form of coupons. Objective 3: Improve Management 4.30 In order to carry out the reform efficiently, it would be neces- sary to strengthen and improve the Government's management capabilities. In view of this, the project would finance the establishment of the Reform Coordination Committee, project administration, and monitoring and evalua- tion studies. 4.31 Reform Coordination Committee (Proposed Outlay: US$0.05 mil- lion). In order to ensure that the nationwide introduction of the educa- tional reform would be prepared and carried out on schedule, it was neces- sary that one unit be specifically in charge of coordination of the reform (para. 3.20). Only the Minister himself had that role and function at the time of appraisal. A Reform Coordination Committee, established in September 1981 directly under the Minister, was in charge of preparing policy analyses on decisions required to be taken by the Minister. It also, in the Minister's name, instructed all units implementing the reform to take specific action and monitor preparation and implementation. Its members were respected, independent education authorities who had no direct line of responsibility for the implementation of the reform. Prompted by the establishment of this committee existing organizations such as the Curriculum Committee and DEN, Planning Department have strengthened their monitoring functions. With a more gradual introduction of the reform, they are now capable of the necessary coordination, and the Reform Coordination Committee would be abolished after one year. The project, under the Project Preparation Facility (para. 1.05), would finance the salaries of five committee members and two support staff during one year (1981/82) as well as office supplies and furniture. 4.32 Project Administration (Proposed Outlay: US$0.7 million). The project would finance the staff and operational costs of the Project Imple- mentation Unit from December 1982 to December 1985. Before that date all costs, including cost of new staff hired, would be financed under Credit 770-HA. In addition, funds would be available to employ consultants (10-12 staffmonths) as necessary to assist the project unit in project implementa- tion, e.g. in establishing a more efficient system of accounts. Costs of the audit of project accounts (US$50,000) has also been included in this component. It would be financed by the Government. 4.33 Monitoring and Evaluation Studies (Proposed Outlay: US$0.2 mil- lion). This project element includes financing of monitoring and evalua- tion studies to be carried out by DEN's Evaluation Unit and the IPN Research Unit and financing of preinvestment studies as needed. The moni- toring study, to be carried out by IPN, would focus on the productivity of the key educational inputs. In the study four sets of variables would be monitored:  - 32 - (a) the work conditions in the classroom, including number and age of students, dropout rates, number of hours of instruction given, and physical condition; (b) the effectiveness of the curriculum, education materials, radio and automatic promotion measures; (c) the effectiveness of the production and distribution system for educational materials, i.e., how many and at what price books are sold; and (d) the effectiveness of the training and supervision programs, including actual data on schoolvisits and their impact. In addition DEN's Evaluation Unit would monitor: (a) the effects of the introduction of the Teacher Charter (para. 3.15), e.g., less attrition, more teachers following in-service training courses; and (b) the reaction of the private sector to the educational reform, e.g., number of teachers trained, use of curriculum. 4.34 The project would finance staff, operational costs, printing and data processing for these studies. The cost for 1981/82 and 1982/83 would be financed under Credit 770-HA. Research coordinators responsible for the monitoring studies in the evaluation unit and in the IPN Research Unit were appointed in September 1981. Before negotiations, the Government provided terms of reference and work programs for all monitoring and evaluation studies satisfactory to IDA. It also provided IDA with the draft Teacher Charter and analysis of its financial implications. 4.35 IPN's Research Unit would evaluate the impact of the reform on student performance and achievement during the first four years of basic education. Terms of Reference for this study were discussed and agreed during appraisal. The study would assess the impact of reform measures (i.e., including Creole, automatic promotion, new teaching methods) on student cognitive, attitudinal and behavioral patterns. The assessment would also take into account family background, social environment and individual capabilities. The study would be carried out in a representa- tive sample of 21 classrooms throughout the country. The project would finance the purchase of one vehicle and its operation, four staff members, local consultants and interviewers, the purchase of tests and materials, and administrative costs. Quarterly work programs and progress reports would be presented to DEN, the Reform Coordination Committee and all other organizations involved in the reform. Before negotiations, staff members of IPN's Research Unit were hired and a detailed research design covering the impact of the reform on student performance and achievement was presented to the IDA. 4.36 Accountants' Examination (Proposed Outlay US$0.1 million). This project element would finance the technical assistance necessary to: (a) develop a standard curriculum and procedures for an examination which would lead to a government certificate for accountants, and (b) review the results annually. The examination should be administered on a self- financing basis. The fee necessary to cover the cost of the examination and subsequent grading would be a small fraction of the tuition which  - 33 - commercial school students currently pay. The list of topics to be covered by the examination would be based on the outline for a certificate program prepared for INAGHEI by CIDA technical assistance staff. During negotia- tions the Government agreed to establish the fee and publish the standard curriculum for the examination by July 1983. 4.37 The project would finance 8-10 staff months of technical assistance; six of those would be required to develop the procedures for examination (jointly with DEN, INAGHEI and the commercial schools), proposing the curriculum, establishing an organization and work program to administer the examination; and recruiting and training the necessary staff. The consultant should review the program at the time the first examination is administered and at 12-month intervals over the following years. During negotiations the Government agreed to: (a) engage a qualified consultant no later than June 30, 1983; (b) administer the first examination in the summer of 1984; (c) discuss with IDA the results of the annual reviews no later than September 1985; and (d) introduce adjustments agreed upon before the subsequent session. 4.38 Technical Assistance. A total of about 287 staff-months of technical assistance would be provided to assist in the implementation of the educational reform (Table 4.6). This technical assistance would come from IDA and from UNDP. In both cases it would be provided by Unesco (with the exception of the technical assistance to be provided to the project unit and the accountants' examination). Contracts were signed in March 1982. The contract to be financed under this project is divided in two phases; one covered under the Project Preparation Facility, the other going into effect only when the proposed project would become effective. The UNDP-financed technical assistance contract is for a period of four years, effective April 1982. Table 4.6: SOURCES OF TECHNICAL ASSISTANCE International Local Tech. Assist. Tech. Assist. Sources Staff-months Staff-months IDA 95 60 UNDP/Unesco 90 42 4.39 The Association's component of technical assistance would finance 155 staff-months at an estimated total cost of about US$810,000; or a staff-month cost of US$300 to US$500 for local consultants and of about US$7,800 to US$9,000 for international consultants. The costs for the  - 34 - international consultants include salary, costs, fees, subsistence and international travel. The technical assistance would be in support of school mapping, curriculum development, educational materials development, training programs, project administration and accountants' examination (paras. 4.06, 4.11, 4.16, 4.22,4.32, and 4.36 respectively). Employment of such consultants through a contract with Unesco is acceptable to IDA in accordance with the guidelines of August 1981. The other consultants would be hired in accordance with IDA guidelines (para. 4.32 and 4.37). UNDP would finance 90 staff-months of international consultants and about 42 staff-months of national consultants for a total of about US$860,000 in curriculum development, educational materials, educational radio, and subject matter specialists. UNDP staff month's costs range from US$6,700 to US$11,000 for international experts and US$1,000 for local experts. 4.40 Parallel Actions. It is likely that construction of the success- ful preschool nutrition centers on the premises of project schools, financed by CARE with USAID assistance, would be continued under this project. CARE is currently constructing these centers parallel to con- struction of schools under Credit 770-HA. UNICEF, in its next four-year program, would also focus on preschool education centers with an estimated investment of US$5.5 million. Under the proposed Forestry Project IPN would receive technical assistance in developing curriculum units for grades 1 to 7 dealing with environment, notably erosion control and importance of reforestation. In addition, some 400 teacher training college faculty members and rural school teachers would be trained in forestry aspects, and demonstration woodlots would be planted in selected rural areas. V. PROJECT COSTS, FINANCING AND DISBURSEMENTS Cost of the Project 5.01 The total cost of the project is estimated at about US$10.9 million, net of taxes. In order to conserve on the use of expensive technical assistance and foreign exchange: (a) the educational programs would make use of local staff and consultants as much as possible; and (b) school construction would make use of local materials, architects/ engineers, standardized designs and community participation in construction. A Project Preparation Facility of US$550,000 was approved in September 1981 (para. 1.05). The cost of this PPF is included in the cost of the project. The breakdown of total cost by project item and type of expendi- ture is summarized below:  - 35 - Table 5.1: PROJECT COST BY PROJECT ITEM * G (millions) US'OOOs % of Local Foreign Total Local Foreign Total Total 1. Access and Enrollment Increase * 1 School Location Study 348 441 789 70 88 158 2.1 * 2 Primary Schools 6,208 7,105 13,313 1,242 1,421 2,663 35.5 Subtotal 6,556 7,546 14,102 1,311 1,509 2,820 37.6 2. Qualitative Aspects * 1 Curriculum Development 1,339 817 2,156 268 163 431 5.7 * 2 Educational Materials 1,025 3,019 4,044 205 604 809 10.8 * 3 Training Programs 7,232 2,326 9,558 1,446 465 1,912 25.5 * 4 Regional Supervision 1,839 937 2,776 368 187 555 7.4 Subtotal 11,434 7,099 18,533 2,287 1,420 3,707 49.4 3. Management Aspects * 1 Reform Coordination Committee 226 12 238 45 2 48 0.6 * 2 Project Administration 2,241 1,215 3,456 448 243 691 9.2 * 3 Monitoring & Evaluation Study 537 253 790 107 51 158 2.1 * 4 Accounting Examination 40 360 400 8 72 80 1.1 Total 3,044 1,840 4,884 609 368 977 13.0 Baseline Costs 21,035 16,485 37,519 4,207 3,297 7,504 100.0 Contingencies Physical contingencies 1,765 1,072 2,837 353 214 567 7.6 Price escalation 5,315 4,039 9,354 1,063 808 1,871 24.9 Total Project Cost 28,114 21,596 49,710 5,623 4,319 9,942 Land Acquisition 290 0 290 58 0 58 UNDP/Unesco Technical Assistance 620 3,680 4,300 124 736 860 GRAND TOTAL PROJECT COSTS 29,024 25,276 54,300 5,805 5,055 10,860 * Apparent errors in additions are due to rounding.  - 36 - Table 5.2: PROJECT COST BY TYPE OF EXPENDITURE * G (millions) US'OOOs % of Local Foreign Total Local Foreign Total Total Construction Site Development 525 525 1,049 105 105 210 2.8 Building 5,247 5,247 10,495 1,049 1,049 2,099 28.0 Subtotal 5,772 5,772 11,544 1,154 1,154 2,309 30.8 Furniture 455 1,061 1,515 91 212 303 4.0 Equipment 80 1,521 1,601 16 304 320 4.3 Subtotal 535 2,582 3,117 107 516 623 8.3 Technical Assistance Staff 9,698 0 9,698 1,940 0 1,940 25.8 Local Consultants 120 0 120 24 0 24 0.3 Foreign Consultants 352 3,171 3,524 70 634 705 9.4 Materials 1,518 2,933 4,451 304 587 890 1.1.9 Implementation Costs /a 3,040 2,026 5,066 608 405 1,013 13.5 Subtotal 14,728 8,130 22,858 2,946 1,626 4,572 60.9 Baseline Costs: 21,035 16,485 37,519 4,207 3,297 7,504 100.0 Contingencies Physical Contingencies 1,765 1,072 2,837 353 214 567 7.6 Price escalation 5,315 4,039 9,354 1,063 808 1,871 24.9 Total Project Cost 28,114 21,596 49,710 5,623 4,319 9,942 Land Acquisition 290 0 290 58 0 58 UNDP/Unesco 620 3,680 4,300 124 736 860 Technical Assistance Grand Total Project Costs 29,024 25,276 54,300 5,805 5,055 10,860 * Apparent errors in additions are due to rounding. /a Includes about US$1 million for implementation of the training courses, e.g. course and transport allowances for participants.  - 37 - 5.02 Base Cost. Cost estimates are based on July 1981 prices (updated to estimated July 1982 prices) and the actual costs obtained under Credits 618-HA and 770-HA. Except for the cost of school sites, total project cost includes, in addition to capital expenditures, virtually all implementation expenditures (salaries, consumable goods, transportation, telex, training costs etc.). Special attention has been given to estimating staff and implementation expenditures, representing about 26% and 13% of total project cost, respectively. All staff hired under the project would have three-year contracts, with option of renewal if necessary for one year. Implementation costs occur in the implementation of the educational reform, and project administration. Estimates for administration costs have been based on the PIU accounting of Credit 618-HA and Credit 770-HA. Teacher training costs range from US$70 to US$185 per month, depending on replace- ment and travel costs. Teachers' guides are estimated at an average unit cost of US$2.00; students' experimental textbooks and workbooks for grades 5 and 6 have unit costs ranging from US$0.40 to US$0.60. 5.03 Construction costs for school facilities have been estimated on the basis of the similar design of schools being built under Credit 770-HA. The designs are simplified by using hinged windows instead of jalousies, roof beams instead of roof trusses, and making cement blocks at the construction site. This simplification would promote fuller partici- pation of communities in school building and greater use of local materials. Building costs for rural primary schools, which are low by any standards, would be about US$150 per square meter, ranging from US$140 to US$155 per square meter of gross construction area. The variation in price is due to difficult access to certain sites. Maximum use of: (a) community participation in school construction; (b) local materials; and (c) prefabricated elements would be sought to counterbalance such factors. It is common practice in Haiti to build community facilities with community participation; usually some skilled and mostly unskilled labor is available in each community, and the cost of local labor is lower than the average wage. Community participation and contracts with small contractors or entrepreneurs should result in costs which are about 20% below conven- tional contracting prices. Salaries of architects/engineers (estimated at US$600 to US$700 per staff-month), PIU support staff, and the cost of other professional services (soil testing, surveying, etc.) represent about 7% of construction costs included in the PIU budget. 5.04 Furniture and equipment lists have been reviewed and approved during appraisal and have been found reasonable in scope and cost, which amounts to 11% and 15%, respectively, of the construction cost. Transpor- tation costs will be monitored through monthly comparison of actual expen- ditures against project costs based on the PIU experience in Credit 618-HA.  - 38 - 5.05 Foreign Exchange Component. The total foreign exchange component is estimated at about US$5.1 million or about 47% of total project cost net of taxes. Foreign exchange costs were estimated at 50% for construction and site development, 70% for furniture, 95% for equipment and foreign technical assistance, 80% for educational materials and 40% for implementa- tion costs excluding salaries (para. 5.02). No foreign exchange component has been estimated for local experts. 5.06 Duties and Taxes. Taxes are expected to be negligible since all items imported specifically for the project would be exempt from customs duties and taxes under current regulations. 5.07 Contingency Allowances. Physical contingencies (US$0.6 million) have been estimated at 5% of construction, furniture, equipment and consul- tant services and 10% of staff, teaching materials, and implementation costs. Price contingencies (US$1.9 million) are based on the following assumptions: (a) activities in all components except construction would start by end-1982; (b) construction would start by January 1984, and procurement of furniture and equipment by October 1983; (c) local costs are expected to increase 10% in 1982, 9% in 1983, and 8% in 1984/86; and (d) annual increases in foreign costs are expected to be: 8.5% for 1982, 7.5% for 1983-85, and 6% for 1986. Financing and Disbursement Plans 5.08 Financin Plan. The total project cost of about US$10.9 million (net of taxes would be financed as follows: Table 5.3: FINANCING PLAN (US$'000) % of Project Costs Local Foreign Total Local Foreign Total IDA 4,681 4,319 9,000 80.6 85.4 82.9 Government of Haiti 1,000 --- 1,000 17.2 -- 9.2 UNDP/UNESCO 124 736 860 2.2 14.6 7.9 TOTAL 5 5,055 10,860 100.0 100.0 loo During negotiations assurances were obtained that the Government (DEN, Ministry of Finance and the Project Unit) and IDA would consult annually in March on the proposed budget allocations for the project and would review annually before August 15 the adequacy thereof.  - 39 - 5.09 Disbursement Plan. The schedule of estimated disbursements is shown in the following table: Table 5.4: DISBURSEMENT SCHEDULE FY Sem. Semester Cumulative % 1983 1 360 360 4.0 2 540 900 10.0 1984 1 540 1,440 16.0 2 810 2,250 25.0 1985 1 810 3,060 34.0 2 1,440 4,500 50.0 1986 1 2,160 6,660 74.0 2 2,340 9,000 100.0 This disbursement profile is based on the actual profiles of Credits 618-HA and 770-HA and the education sector in Latin America and Caribbean Region over FY70-80. h.10 Recurrent Costs. The annual recurrent expenditure likely to be generated by the project upon its completion is estimated to reach about G2.5 million in constant 1981 prices. This represents 2.5% of the recur- rent budget of the Department of Education in 1986/87 and 3.8% of the primary education recurrent budget projected for 1986/87 (first year after completion of the project). It would represent about 13% of the increment of the education recurrent budget between 1980-81 and 1986-87. The Govern- ment gives priority to the project, and is expected to be able to accommo- date the incremental costs without undue difficulty. However, the Govern- ment would also have to set aside from its development budget, which is estimated to be about US$4 million per year according to the Education Sector Plan, about US$2 million for the period 1985-88 in order to complete the implementation of the reform on a nationwide scale for the full first cycle. Project Administration and Implementation 5.11 Administration of the project (coordination, implementation, supervision, and monitoring) would be the responsibility of the existing Project Implementation Unit (PIU), originally established under CONADEP to implement Credit 618-HA. The PIU was expanded to implement Credits 618-HA and 770-HA simultaneously, and it has been reassigned under DEN since November 1979. The PIU is expected to complete implementation of Credit 770-HA by December 31, 1984, one year behind schedule. Consequently, strengthened with a few additional staff, the PIU would have adequate capacity to implement the proposed project. Current staffing of the PIU is as follows: one project director (educator), one deputy director  - 40 - (architect), one civil engineer, two assistant engineers, two accountants, one procurement officer, one educator, one community promoter, and support- ing staff. In addition, for the implementation of the proposed project the following staff would be recruited: (a) one educator; (b) two assistant educators; (c) one assistant accountant, and (d) one assistant procurement officer. 5.12 Besides directly implementing and supervising school construction activities, the PIU would coordinate the activities of IPN, and DEN's Planning, Programming and Evaluation Department, which share the responsi- bility of implementing the project, especially the educational aspects. IPN consists of four divisions, involved in project implementation: train- ing unit, curriculum-learning materials unit, evaluation unit and pedago- gical supervision unit, each responsible for the respective programs. Recently, the Teaching/learning Materials Unit and the Educational Radio were also incorporated in IPN; they would be responsible for the develop- ment of the teaching/learning materials and the distribution of the experi- mental materials and of the teachers guides, and for implementing the radio teacher training program respectively. DEN's Planning, Programming and Evaluation Department would be responsible for the school mapping exercise and, with IPN, for the monitoring and evaluation studies. The Reform Coordination Committee is directly placed under the Minister. 5.13 Project Monitoring and Evaluation. The PIU would be responsible for preparing periodic progress reports which would provide information on the quantitative aspects of the project. The standard forms developed under Credit 770-HA for this purpose would be revised to suit the reporting requirements of this proposed project, and the relevant information would be sent on a quarterly basis to the Bank and the DEN departments. Monitor- ing of the reform preparation and implementation would be the specific responsibility of the Curriculum Committee and DEN's Planning Department. They would receive quarterly progress reports on the monitoring studies to be carried out by research units of IPN and the Department of Planning (para. 3.24). A project completion report would be prepared by the Govern- ment within six months of project completion. Funding for this final project evaluation is included in the project administration budget. DEN's Evaluation Unit would be responsible for the overall evaluation of the two reforms. The research unit with IPN would be responsible for student and school evaluation; it would carry out a national study of academic achieve- ments. 5.14 Readiness for Implementation. The project is at an advanced stage of preparation because of the provision of the Project Preparation Facility (para. 1.05). Staff for curriculum development, educational materials, IPN's Research Unit and the Reform Coordination Committee have already been hired in part. Programs for all the software components would be ready for implementation in September 1982, since almost all of these programs are continuations of existing work programs. The Government has established curriculum objectives and a study plan for Grades 1 to 4. Construction of the first schools would start January 1984. Master lists  - 41 - of equipment were approved during appraisal for all project components. Detailed training programs were approved during appraisal. The first phase of the school mapping exercise should be completed by September 1982; the exercise for all three departments would be finished by December 1983. 5.15 Implementation. Project implementation is expected to be com- pleted in about four years including implementation under the Project Preparation Facility. A summarized implementation schedule, shown in Chart 3, was discussed with DEN officials during appraisal and agreed upon as a project implementation and monitoring tool, which will be followed by a CPM chart to be prepared by the PIU. The project completion date would be June 30, 1986; the closing date, December 31, 1986. Procurement 5.16 Construction. Due to the small sizes and dispersed locations of project schools, the contract packages are not expected to attract foreign contractors, but foreign bidders will not be precluded from offering con- struction proposals. Experience under Credits 618-HA and 770-HA shows that civil works contractors operating in Port-au-Prince find it inconvenient and unprofitable to construct schools in remote, isolated communities which characterize project school sites. Consequently, they do not participate in regular local bidding procedures. Construction contracts would be awarded on a negotiated basis with small local contractors prequalified by the PIU. Tho bulk of building materials (cement, steel, lumber, roofing sheets, electrical and plumbing materials, etc.) amounting to about US$850,000 would be procured through ICB and provided to local contractors by the PIU. Support from the Public Works road engineers (in terms of building materials delivery and construction supervision) would be secured, and a fixed fee for supervising engineers and delivery costs, where incurred, would be financed under the project. 5.17 Furniture, Equipment and Materials. Contracts for furniture, equipment and school materials, including textbook printing, (about US$600,000) would be procured through ICB in accordance with IDA guidelines (the use of the facilities of UNICEF for procurement of primary school fur- niture, equipment and materials would be considered). Furniture, equipment and materials which cannot be grouped in packages of at least US$50,000 expected to aggregate about US$250,000, would be procured through LCB pro- cedures, which have been found acceptable to IDA. Items not exceeding US$3,000 per contract, amounting to about US$100,000, unsuitable for pro- curement through competitive bidding would be procured through local shop- ping and would include to the extent possible, quotations from at least three manufacturers or suppliers. In the case of ICB, domestic manufac- turers would be allowed a preferential margin in bid evaluation equal to the prevailing tariff or 15% of the CIF price of competing foreign sup- pliers, whichever is lower. 5.18 IDA Review of Tender Documents Contracts and Work Programs. Draft tender and contract documents for building materials, school materials, furniture, equipment and textbook printing and purchasing contracts would be forwarded for IDA review and approval. IDA approval of tender evaluation documents would be required prior to the award of all such contracts. For civil works the P.I.U. would prepare and submit for approval detailed estimates for each construction phase; total amount of  - 42 - approved estimates would be the ceiling cost for each phase. For the reform implementation components, PIU would prepare and submit for approval annual implementation plans and detailed cost estimates. Disbursement 5.19 The proposed credit, which would finance 83% of total project costs, is expected to be disbursed over a period of four years (para. 5.09). Through the Project Preparation Facility up to US$0.55 million will be disbursed by December 31, 1982. Since experience with other projects has shown that budgetary constraints limit the capacity of Govern- ment to pre-finance expenditures to be reimbursed under IDA credits, a working fund of US$0.5 million equivalent, to be opened and maintained by withdrawal from the Credit Account, would be established in a special account opened in an appropriate bank. IDA would commence recovery of the initial deposit when the undisbursed credit amount plus any commitments to commercial banks has reached the level of US$1.0 million. The special account shall be subject to specific audit each fiscal year in accordance with appropriate auditing principles consistently applied, by independent auditors acceptable to IDA. Establishment of the special account and of a regular project account by the Government would be conditions for credit effectiveness. 5.20 The table below indicates the categories which would be financed out of the proceeds of the credit, the amounts allocated to each category and the percentages to be financed. Table 5.5: CREDIT CATEGORIES, AMOUNTS AND PERCENTAGES TO BE FINANCED Amount (US$) of the Credit % of Expenditures Category to be Allocated to be Financed 1. Civil works except for 1,000,000 65% materials under Category 2 2. Building materials 600,000 100% for foreign expen- ditures; 85% for local expenditures 3. Furniture, equipment, paper 1,000,000 100% for foreign expen- for textbooks and learning ditures, and 85% for materials local expenditures 4. Staff, professional fees, 4,000,000 100% consultants' salaries, training courses, textbooks and implementation costs 5. Project Preparation Facility 550,000 6. Initial Deposit Special Account 500,000 Unallocated 1,350,000 TOTAL 9,000,000  - 43 - Disbursements would be made against withdrawal applications prepared by the PIU and submitted to the Bank, with standard documentation covering procurement of building materials, furniture and equipment. Statement of expenditures with an aggregate value of US$3.4 million would be utilized for disbursing on salaries, labour for construction and implementation expenditures of: (a) school construction; (b) project administration; (c) six items related to the educational reform; and (d) the school mapping exercise, all seven items to be implemented under the responsibility of IPN and DEN staff. Statements of expenditures would follow detailed official working agreements 5/ prepared for each item in a fashion satisfactory to IDA and would be subject to specific auditing. In addition, withdrawal applications for payments for items procured using LCB or local shopping procedures in amounts less than US$3,000 for project administration, studies, training, and professional services would be supported by statements of expenditures. Supporting documentation for such statements would not be sent to IDA but would be available for review during supervision missions. Accounts and Audit 5.21 The PIU would maintain a separate account for the project, in accordance with acceptable accounting practices. Expenditures incurred for each project element would be recorded separately to facilitate monitoring of project costs. A quarterly summary of project accounts reflecting cumulative expenditures incurred by the end of the quarter would accompany progress reports sent to IDA for information. Annual auditing would be required for all expenditures financed under the project, in particular, for those expenditures reimbursed under SOE procedures. General auditing of the PIU's accounts would be made by the Cour Superieure de Comptes (CSC) in accordance with government auditing procedures. During negotiations, the Government would be asked to provide assurances that, the special account, project accounts and statements of expenditures would be audited annually by qualified independent auditors acceptable to IDA, and a certified copy of the annual audit report would be sent to IDA within six months following the end of each fiscal year during project implementation. VI. BENEFITS AND RISKS Benefits 6.01 The proposed project would help consolidate changes being brought about in primary education so that a greater number of children, particu- larly in rural areas, would be able to complete the first four grades with at least minimum learning achievement. As a result of the proposed invest- ment, 4,600 rural Haitian children, half of them girls, who otherwise would not have had a school to enter, would be able to attend primary school each year. In addition, investments in improved teaching and curricula are expected to reach 600,000 children in grades 1-4 by 1987/88. These changes in quality would enable a greater proportion of children who start school 5/ These working agreements are legally binding contracts in Haiti; however, since they are between two government agencies, they are not considered legally binding contracts by IDA.  - 44 - to complete it. Estimates are difficult, but it is projected that the completion rate for the first grades of rural primary education would increase from 20% at present to about 40%. Thus, about twice as many children at present are expected to complete primary school each year from 1988 onwards. Improvements in the quality of education through improved curricula and teaching are expected to ensure that children become literate and numerate by the time they leave school after grade four. Studies during the course of implementation would establish a baseline against which to measure quantitatively the learning benefits of the project. The proposed investment, thus, would generate increased numbers of literate and numerate people in rural areas which, over time, would contribute to increased farmer productivity, reduced fertility rates among women, better rural health and increased upward occupational mobility for rural youth though improved access to further education. Risks 6.02 Because this project basically finances the implementation of an education reform there are several identifiable risks inherent to dealing with a major restructuring of an education system. First, this is a long- term program which during its implementation could well be changed in either its major objectives or in more minor policy decisions. Secondly, a dilution of the quality of the reform could occur as it becomes a nation- wide effort, i.e., implementation of the reform on a national level may prove to be too ambitious, in which case the number of teachers and schools affected would need to be reduced or the implementation schedule extended. Another risk is the fact that the project only covers nationwide introduc- tion of the reform for grade 1, and that additional investments for grade 2-4 would be needed in order to fully realize the benefits inherent in this project. Finally, the situation with counterpart funds is presently constrained and there is the general risk that counterpart funds would not be forthcoming timely or in the amounts required which in turn would influence the planned implementation period. The Government intends to monitor these risks carefully. Early detection, together with intensive supervision by the Association, would help the government take corrective action. VII. AGREEMENTS REACHED AND RECOMMENDATION 7.01 During negotiations, the Government gave assurances on the following matters: school location criteria (para. 4.06); textbook price control mechanism (para. 4.18); provision of textbooks in classrooms (para. 4.21); accountant's examination (para. 4.37); budget consultation meetings (para. 5.08); Special and Project Account (para. 5.19); and audits (para. 5.19). 7.02 Conditions of effectiveness would be the establishment of the Special and Project Accounts (para. 5.19). 7.03 Subject to the above conditions, the proposed project would constitute a suitable basis for a credit of US$9 million equivalent to the Government of Haiti on standards IDA terms.  -43 - BASIC EDUCATION PROJECT PageI of1 COMPARATIVE EDUCATION INDICATORS NOVEMBER 2.. 1982 :CENTRAL:: : : : : GOVT. :: : ::: * . . ~~~~~: EXP. ON: : IPRI. :RECURRENr:: :E.: * . , I~~~~~~EDU. AS: EDUCATION :LITER- :PR1 ;CIIMPLE-- :srU- :UNIT COST:PROGRESS-: SEC. :STU-. :HIGHER: * , , IS~~~~~ TTL. I RECURRENT IACY IENRO'LLIT1N IDENTS:PRIM. ED. lION RATE IENROL.L:D1ENTSIENROL)1 * IGNP/ I SOH ICENTRALIEKP ALLOCATED: RATE IRATID IRATE FORIPER :AS 1 GNP/IFRUM PRI.!RATTO !PER :RATIQO PASEIP0F. ICAPITA: DIE.VI 1501 GOVT. I TO: 1(% OF I NET :PRI.SCH. ITEACH- CAPITA ITO SEC. INET :TEACH- GROSSI. YRI:MILLS. I (US*)I TO E0O.1 EKP, IPRI. SEC. HI.-ADULTS>I' 1% CYCLE(S)IER :() 1(5) :58, <y() U(1979)I(1979)I , (1976) I ' ' PliEVEL 0PHD COUINTRIES 8USTFRALIA 60 14,6 8,670 6.3A 14.6 -- - - OA 103K 100 21 --- 99 73 13 20.90 CANADA 61 23,7 9.650A 7.7A 18.58? 3bAT 34A? 23A? 99 106X 14)0 21 19.9A? 100 92X 18 22.60X GERMANY, P.R. 79 61.4 12.220 4.6 9.9A ----98 100A -- -- OA 94A - 12.108 NETHERLANDS 79 14.1 11,084 7.9 5.1 20 35 25 991? 96 95 16 15.3 99 62 13 12.40 NEW ZEAL-AND, 80 3.2 6,001 5.5w 13.4 37 31 28 99 100 100 24 11,6 100 82 15 25.80X* SWEDEN 79 6.3 12,863 9.0 18.2 31 10 10 99A 99K 100 IS3A 19.9? 100 79K IbAY 36,5OAY EASTERN AFRICA BDTSWANA 60 0.636 7209 6.3P' 19.3 48 28 15 356 94 74 32 22.0 33** 20 1S 1.50 BURUNDI 81 4.2 235 2.B8W 19,0 42 35 23 25 28X 35 37 22.6 12 3K 17 1.00 COMOROS; 60 0.463 260 6.1W 25.4 40 28 14 --- 99K 65 45 16.0 58 21X 30 1.40. UIJIBOUITI 81 0.3 460 5.4 10.8 60 40 ... 10 32 -- - 41 --- 60 8 19 0.50 ETHIOPIA B0 31.06 1308 2.2P 11.IA 52 32 14A 15 36 --- 59 18.0 --9 41A 5.10 KENYA 79 15.3 390) 5.9W 18,06 71 1F, 14 45 92 74 40 15.8 41 19 203 1.00 LESOTHO 80 1.3 4IOP 4.31' 21.0 51 24 25 52 64 61 49 4.0 64 1? 21 0.90 MADAGASCAR 77 8.5 330 4.0W 24,0 53 28 19 50 946K 33 556 8.0 38 14 23 3.106Y MALAWI 81 6.18 2306 3.4 10.26 38 14 25 256 62 23 65 5.63 12 4 21 0.40 MAURITIUJS 79 0.9 1.0806 6.8? 17.58 50 26 6 --- 82? 99 206? 19.5? 90 73BXY 276? 1,566 RWANDIA 80 5.06 2008 3.2 21.3 62 17 11 238 57X 62 40 14.0 6 4K 13 0.40 SOMALIA 78 3.8 1858 2.0W 11.0 55 10 21 506 268Y --- 276 20.4 536 46KX 168t 1.00 SUDAN 76 17.9 450 4.5W 19.9 48 36 16 206 506K 74 356 46,7 33 166K 196 1.07Y SWAZILAND 78 0.5 650 7.1W 12.2 36 33 18 656 806? 49A 358? 7.7 66A 336KY 208 2.00 TANZANIA 80 18.5 260 5.9? 17.7 47 10 16 796 986 87 21 11.0 198 3 20A 0.016 UGANDA BD 12.68 3006 --- 16.1W 238 378 206 46 54X 61 34 --- 17 5 23 0.60 ZAIRE 78 27,5 2108 6.0W 22.0 49 26 25 15 84? 44 42K --- 41 13K 27 1.106? ZAMBIA 80 5.78 5666 4,SP 11.1 48 23 22 446 95 60 48 12.9 19 16 2~2 1.50 ZIMBABWE 81 7,76 7006 5.1 19.5 62 321 6 446 90 55 39 20.0 85 15 23 0.50 WESTERN AFRICA BIENIN 79 3.46 3208 6.5W 35.0 43 21 5 116 42 30 46 14.0 30 11 43 1,00? CAMEROON 78 8.2 590 2.9? 16.0? 338 438 208 - 74? 458 50? 11.68 208 14Y 26 1,30Y C.A.R. 79 2.2 280 3.88? 20.68?