Papua New Guinea - Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 5126 PROJECT PERFORMANCE AUDIT REPORT PAPUA NEW GUINEA FIRST EDUCATION PROJECT (CREDIT 661-PNG) June 15, 1984 Operations Evaluation Departuent This document has a restricted distribution and may be used by recipients only in the performance of their olBcial duties. Its contents my not otherwise be disclosed without World Bank authorization. FOR OFFICIAL USE ONLY LIST OF ABBREVIATIONS DOE - Department of Education DOPH - Department of Public Health DOPI - Department of Primary Industries DWS - Department of Works and Supply HATI - Highlands Agricultural Training Institute HEO - Health Extension Officer HI - Health Inspector OPC - Office of Project Coordination EMC - Project Management Committee UPNG - University of Papua New Guinea VDC - Village Development Center 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. PROJECT PERFORMANCE AUDIT REPORT PAPUA NEW GUINEA FIRST EDUCATION PROJECT (CREDIT 661-PNG) TABLE OF CONTENTS Page No. Preface ....................................................... j Basic Data Sheet .....................................................ii Highlights .......................................................... v PROJECT PERFORMANCE AUDIT MEMORANDUM I. PROJECT BACKGROUND .................. .................... 1 II. PROJECT IMPLEMENTATION AND MANAGEMENT ................... 4 Civil Works ........................ .................... 4 Furniture and Equipment .................... o............ 4 Project Coordination ........................................ 5 Project Costs and Finance ................................ 5 Supervision . ................................................. 5 Covenants .......................................... ... 5 III. OPERATING OUTCOMES ....................................... 5 The Highlands Agricultural Training Institute (HATI) 5 College of Allied Health Sciences .................. ... 6 Primary Teacher Training College - Madang ................ 7 Goroka Teachers' College .......................... 7 Lae Technical College ............................. 9 Other Project Components ........................... 10 IV. SUMMARY AND MAIN CONCLUSIONS ..................... 11 Attachments I - III - Comments from the Borrower ......... .... 15-17 PROJECT COMPLETION REPORT 1. Introduction .................................... ... 21 2. Project Background ........................................ 21 3. Project Management and Implementation .................... 25 4. Project Costs and Financing .............................. 32 5. Operating Outcomes .............. o-o..................... 34 TABLE OF CONTENTS (contd.) Page No. Annexes: 1. Planned and Actual Implementation Schedule ............... 39 2. The Highlands Agricultural Training Institute - Enrollment and Graduates 1973-1982 ................................. 40 3. College of Allied Health Sciences - Enrollment and Output 1979-1982 .................... . .. 41 4. Madang Teacher Training College - Enrollment 1977-1982 42 5. Goroka Teacher Training College - Enrollment and Graduates 1980-1982 .............. .......... 43 6. Lae Technical College - Enrollment 1979-1982 44 PROJECT PERFORMANCE AUDIT REPORT PAPUA NEW GUINEA FIRST EDUCATION PROJECT (CREDIT 661-PNG) PREFACE This is a Project Performance Audit Report (PPAR) on the First Education Project in Papua New Guinea, for which Credit 661-PNG was approved in October 1976 in the sum of US$4.0 million. The closing date was March 31, 1982 and the credit was fully disbursed. The audit report consists of (a) a Project Performance Audit Memorandum (PPAM) prepared by the Operations Evaluation Department (OED) and (b) a Project Completion Report (PCR) prepared by the East Asia and Pacific Regional Office. The PCR is based on a draft completion report prepared by the Borrower as well as on the findings of a UNESCO mission which visited Papua New Guinea in May/June 1982. The PPAM has been prepared by OED following a one-week mission in the field in November 1983 and draws on material in the Bank's files including the Appraisal Report (1210-PNG) dated September 22, 1976; the President's Report (P-1918-PNG), dated October 1, 1976; the Development Credit Agreement dated November 19, 1976; and the Appraisal Report of the follow on project (3027b-PNG). Consultations have been held with Bank Staff and with Borrower officials. As is customary in the preparation of audit reports, copies of the draft audit were sent for comment to the representatives of the -Borrower; this was done on March 13, 1984. Comments received from the Borrower are reproduced as Attachments I-III. The audit confirms the main conclusions of the PCR, examines in some depth the operating outcomes at the various project institutions and the factors influencing the achievement of the stated objectives. PROJECT 1ERFORMANCE AUDIT BASIC DATA SHEET PAPUA NEW GUINEA FIRST EDUCATION PROJECT (CREDIT 661-PNG) KEY PROJECT DATA Appraisal Actual or Estimate Current Estimate Total Project Cost (US$ million) 7.4 6.6 Underrun (Z) - 11 Credit Amount (US$ illion) 4.0 4.0 Disbursed - 4.0 Cancelled 0.0 Repaid to 03/31/84 0.0 Outstanding ) 4.0 Date Physical Components Completed Aug. 1978 Sep. 1981 -in Months Since Credit Signature 21 58 Proportion Completed by Above Date (%) - 100 Proportion of Time Overrun (Z) 118Z / Institutional Performance Good Cumulative Estimated and Actual Disbursements (US$ million) FY 77 78 79 80 81 82 (a) Appraisal Estimate 0.40 1.80 3.00 3.90 4.00 4.00 (b) Actual - 0.40 1.34 2.83 3.72 4.00 (c) Actual as % of Appraisal - 22 45 73 93 100 OTHER PROJECT DATA Original Actual or Item Plan Revisions Estimated Actual First Mention in Files 06/04/70 Government's Application 04/27/73 Negotiations 09/13/76 Board Approval 10/19/76 Date of Credit Agreement 11/19/76 Effectiveness Date 02/17/77 - 01/03/77 Closing Date 12/31/81 03/31/82 03/31/82 Borrower Independent State of Papua New Guinea Executing Agency Office of Project Coordination, Ministry of Finance Fiscal Year of Borrower July 1 - June 30 Follow-on Project Name Primary Education Project Loan/Credit Number Loan 1934/Credit 1087-PWG Amounts US$6-0 million (Loan); US$12 million (Credit) Loan/Credit Agreement Date May 11, 1981 /a The completion time for all the physical components shows a time overrun of 118%. It should be noted however, that this was largely due to a very late start on one component-Lae Technical College-and the need which arose for supplementary works on three components. The average construc- tion time per component was 25.8 months whereas it was envisaged at ap- praisal that overall construction would take 24 months (see PCR Annex 1). - iii - MISSION DATA Sent Month/ No. of No. of Staff Date of Mission b Year Days Persons* Weeks** Report Pre-Identification IDA 11/71 9.0 1 (G) 1.2 09/02/71 Identification 11/72 21.0 4 (3G,E) 12.0 01/24/73 Reconnaissance 05/73 9.0 1 (G) 1.2 05/23/73 Pre-Appraisal 11/75 21.0 4 (3G,E) 12.0 12/02/75 Appraisal 03-04/76 25.0 3 (A, 2G) 11.0 09/22/76 37.4 Supervision 1 IDA 01/77 2.0 1 (A) 0.3 03/09/77 Supervision 2 05/78 10.0 1 (G) 1.4 05/03/77 Supervision 3 07/79 5.0 1 (G) 0.7 06/05/78 Supervision 4 12/79 10.0 3 (G,A,E) 4.3 09/06/79 Supervisio. 5 03/81 10.0 1 (G) 1.4 12/21/79 Supervision 6 03/82 3.0 1 (G) 0.4 04/22/80 Completion UNESCO 05-06/82 24.0 2 (A,E) 6.8 02/--/83 Total 15.3 * A = Architect G = General Educator E = Economist ** Number of Staff-weeks attributable to this project. - iv - COUNTRY EXCHANGE RATES Name of Currency (Abbreviation) - Kina (K) Exchange Rates: Appraisal Year (1976) -- US$1 = K 0.787 Intervening Years Average -- US$1 = K 0.720 Completion Year (1982) -- US$1 = K 0.683 ALLOCATION OF CREDIT PROCEEDS (US$) Original Actual Category Allocation Disbursement 1. Civil Works, Furniture and Professional Services 1,450,000 1,837,276 2. Instructional Equipment 800,000 1,032,623 3. Technical Assistance 1,250,000 1,130,101 4. Unallocated 500,000 - TOTAL 4,000,000 4,000,000 - v - PROJECT PERFORMANCE AUDIT REPORT PAPUA NEW GUINEA FIRST EDUCATION PROJECT (CREDIT 661-PNG) HIGHLIGHTS A credit of US$4.0 million to assist in financing the First Education Project in Papua New Guinea, was approved in October 1976 and signed in November 1976. The project's main objectives were to: (a) help meet immediate manpower needs in agricultural and health extension, the teaching service, and industry; and (b) support planning and studies needed for the long range development of education and training in Papua New Guinea. An objective of the teacher traina.ng item was to improve the cost-effectiveness of education and training primarily by decreasing the share of expatriates in the teaching force. The project components supported the expansion of: three post-secondary technical institutions for agriculture, health and technician training; two teacher training institutions for primary and secondary teachers; and five rural vocational centers. Support for educational planning, studies and project-related technical assistance was also provided. The project was implemented substantially as planned. New student places provided, at about 870, were in line with appraisal estimates, (PCR, para. 3.05 and Table 3.1) and planning, studies and technical assistance items were implemented as envisaged. The project was efficiently executed at a cost of US$6.6 million, 11% below the appraisal estimate of US$7.4 million. The cost underrun was largely due to the fluctuating value of the Kina against the US Dollar during implementation and to lower than envisaged unit costs and price escalation for consultant services and civil works (PCR, para. 4.01 and Table 4.1). The unutilized credit funds were reallocated to finance project-related improvements. Credit funds were fully disbursed and the account closed on March 31, 1982, three months after the original closing date. The project was implemented during the difficult period when Papua New Guinea was undergoing transition from colonial to independent status and focussed largely on meeting quantitative demands for local manpower. To meet projected needs the project set ambitious targets in terms of enrollment, output and employment (PCR, paras. 5.02-5.03 and Tables 5.1 and 5.2). While considerable progress was made towards meeting the targets, there were shortfalls. Overall enrollments have reached only 70% of estimates, while female enrollments have fallen 50Z short of targets. The shortfalls can be attributed largely to: - inadequate supply of qualified secondary school graduates as applicants to project institutions [PCR, para. 5.04 (a)]; and - vi - - inability of the education system to respond to changing manpower demand [PCR, para. 5.04 (b)]. - The project succeeded to some extent in replacing expatriate teachers with local staff especially at the lower secondary level. The outcomes of the various project studies have been mixed but, on balance, have contributed towards the development of planning and management capabilities. The main lesson emerging from this project seems to be that national constraints unforeseen at appraisal, may severely impede achievement of the objectives. Such constraints sometimes grow out of more clearly defined macroeconomic policies developed in the dialogue between the Bank and Borrowers and may result, for example, in reduced public sector growth and reduced public sector employment. Other points of interest, together with the lessons related to them are: (i) It is important, in expanding training places for middle level technical/vocational manpower to ensure that adequate numbers of qualified trainees are likely to be available (PPAM, para. 52). (ii) Where countries are borrowing for 'the first time and are inexperienced in the Bank's procurement procedures, it is useful to include consultant services (PPAM, para. 14). Consideration should also be given, however, to providing training, in advance, for borrower staff, in procurement procedures. (iii) The use of professional services available locally could significantly reduce costs (PPAM, para. 16). (iv) There are certain risks in preparing secondary school teachers, particularly those for the lower grades, in too narrow a subject range. The shift from three subjects to two related subjects appeared acceptable but a single subject specialization gives some cause for concern (PPAM, para. 36). The inclusion of an additional "minor" subject as is being urged by the Bank would reduce the risks in over specializAtion. (v) Specific incentives may be necessary to get increased enrollments in relatively expensive technical institutes particularly with respect to potential recruits frdm the private sector (PPAM, para. 41). (vi) There are clear advantages in emphasizing village based as different from center-based training 'when attempting to promote integrated rural development. At national level, one or two centers for training higher level staff involved in such work may be advantageous but the bulk of the training should be based in the villages (PPAM, paras, 44, 45). - vii - (vii) In many places and especially in small countries, public service growth is being curtailed as the pressure mounts to reduce public expenditure. In such cases, there is a need to monitor the capability of the public service to absorb the graduates of training institutions who traditionally obtain public service employment. Improved manpower forecasting will help, but even where the need exists budgetary constraints may preclude actual increased recruitment (PPAM, paras. 55, 56). (viii) Replacement of expatriates with local staff is often a slower process than is envisaged particularly at higher levels and should be carefully programed (PPAM, para. 58). - 1 - PROJECT PERFORMANCE AUDIT MEMORANDUM PAPUA NEW GUINEA FIRST EDUCATION PROJECT (CREDIT 661-PNG) I. PROJECT BACKGROUND 1. Discussions between the Bank and the Government of Papua New Guinea concerning assistance for education development began in 1970. During the period L971 to 1973, three major Bank missions were mounted: pre-identifica- tion, identification and reconnaissance. Emphasis shifted in these discus- sions from assistance for technical education to a more broadly based project aimed at raising productivity in the rural areas and geared towards identifi- able employment possibilities. As a result of continuing interaction between the Bank and the Government, the following project items were endorsed: agriculture extension, rural vocational centres, high schools (grades 7 to 10) senior high schools (grades 11 and 12), seconlary teacher training, multi-purpose colleges, Lae Technical College, and pre-investment studies relating to rural community education and an education development centre. It was envisaged that project preparation would proceed in June 1973 and Bank appraisal in September of the same year. 2. As things turned out appraisal did not take place until three years later-April 1976. This delay was due mainly to developments within Papua New Guinea, e.g., communication problems between the Department of Education and other departments of Government, the absence of a National Education Plan into which the project could be set and local concerns about the advisability of borrowing for social services. 3. The Government revived the project in 1975. An initial five-year plan for the development of the education sector was drafted but it was agreed that Cabinet approval of the plan would not be a prerequisite for loan approval and the Bank accommodated the Government's wish to proceed quickly by foregoing a sector review and fielding a pre-appraisal mission in March 1975 and an appraisal mission in March 1976 (PCR, para. 2.01). 4. At appraisal the main purposes of the project were stated as to provide, (i) urgently needed training facilities for a variety of middle level skill requirements (agricultural, medical, pedagogical and technical); and (ii) technical assistance for institutions and for studies regarded as essential for the future development of education and training in Papua New Guinea. -2- 5. Although at appraisal, Papua New Guinea had an education system that was well developed in many respects, several shortcomings which needed to be addressed by the Government, were also observed. These included the disparities in educational opportunities by geographic location, age and sex, the lack of coordination and the low priority given to adult and out of school education, the proliferation of small scale training programs, the high proportion of expatriates in the labor force including education and the relatively high recurrent costs per student at all levels of the education system (PCR, para. 2.03). 6. By way of background, it is also worth noting that the Government's National Improvement Plan, which was a statement of national policy, centered on four basic objectives: decentralisation, self-reliance, rural improvement and equitable distribution of economic benefits. Attempts to address the shortcomings in the education sector had to be conceived and implemented ir tune with the overall national policy enunciated. 7. Further refinement of the purposes stated at appraisal resulted in the following specific objectives for the project: (i) to help meet manpower needs projected by the Government for the period 1975-1985 in agricultural and health extension, the teaching service (primary, secondary, vocational and technical) and industry (middle level technicians); and (ii) to support educational planning and studies essential to the long range develt-ment of education and training in Papua New Guinea, with -articular emphasis on (a) strengthening the planning capability at the provincial level; (b) developing a comprehensive approach to rural-oriented training; and (c) simplifying the complex system of industrial training (PCR, para. 2.04). In the context of educational planning and studies, the project was to finance a preinvestment study of rural and community education and training, provide technical assistance for educational planning and curriculum development at selected project institutions, and prepare the way for the establishment of a National Training Council. 8. The institutions selected for inclusion in the project with the targets to be achieved are shown hereunder: (PCR, para. 2.05). - 3- PROJECT ITEMS AND TARGETS FOR 1981 Incremental Student Targets for 1981 Placed Student Boarding Staff Project Component Grades/e in 1976 Places Places Houses Rural-oriented Training Highlands Agricultural Training Institute, /a 11-12 60 140 140 28 College of Allied Health Sciences, Madang, lb 11-13 120 45 64 12 Five Rural Vocational Centers, /c (7) 300 - - - Teacher Training Madang Teachers College (Primary), /c 11-13 296 144 144 5 Goroka Teachers College (Secoudary), /d, /c 11-13 430 200 180 16 Technician Training Lae Technical College /c 11+ 585/f 315 0 8 /a Department of Primary Industries (DOPI). /b Department of Public Health (DOPH). /c Department of Education (DOE); experimental cou;ponent. /d University of Papua New Guinea (UPNG). Ie Including a preliminary year, equivalent to grade 11, secondary. /f Overall enrollment including pre-employment training and technicians courses. 9. It will be noted that several government departments as well as the University of Papua New Guinea were involved as the various project institutions were responsible to different agencies. In view of this, a Project Management Comwittee including relevant department secretaries and the Vice Chancellor, UPNG was established to oversee and guide the implementation of the project. Actual execution was the responsibility of the Office of Project Coordination (OPC) which is a unit within the Ministry of Finance responsible for implementing externally financed projects (PCR, para. 3.03). 10. Despite the somewhat diverse nature of the project, it was designed on a small scale with total costs estimated at US$7.4 million, of which IDA financed US$4 million. The major category of expenditure was civil works and furniture. (Appraisal US$3.4 million; Actual US$3.9 million). By selecting key areas that were regarded as being in need of urgent upgrading and -4- recognizing the human resources constraints faced by the newly independent country, this initial lending operation was in the nature of a ground clearing operation and paved the way for more systematic development of the sector through the follow on projects which were focussed on primary and on secondary education. II. PROJECT IMPLEMENTATION AND MANAGEMENT Civil Works 11. With the exception of Goroka Teachers' College, the design, tendering and supervision of civil works were all entrusted to the Department of Works and Supply (PCR, para. 3.30). This department performed very well, using locally available light weight materials and more often than not, standard designs (PCR, para. 3.06). General satisfaction has been expressed by users with the functional designs and the high technical standards. The few problems which arose at Lae and at Madang were remedied with savings realized from the project (PCR, paras. 3.03 and 3.10). 12. At Goroka it is generally acknowledged by borrower staff that the civil works experience was somewhat disastrous. The University's architect, in collaboration with a private firm, prepared designs which are regarded by users as unsuitable. There is also evidence of poor workmanship and inadequate supervision (PCR, para. 3.07). Following a severe earthquake, remedial works were carried out, on this occasion by the Department of Works and Supply, but at the time of the OED mission serious problems still existed especially in staff houses and significant additional resources will be required to make the needed structural changes. 13. While it is difficult to generalize, it is worth noting that in many Bank projects in which universities are involved in implementing civil works, fewer problems have been encountered than some carried out by Public Works Departments. In this case, the Public Works Department (DWS) performed creditably and it was the civil works component for which the University was responsible that produced unsatisfactory results. The OED mission was persuaded that the University's present capability is much stronger and that an unfortunate combination of circumstances led to the earlier difficulties and believes that there is less likelihood of such a recurrence if civil works are entrusted to the University in the future. Furniture and Equipment 14. After the Bank had rejected producer referenced equipment lists and provided a consultant to assist in preparing new lists, equipment procurement went smoothly. Providing such consultant services for procurement in the case of new borrowers is helpful but consideration also needs to be given to training, in advance, for borrower staff. Since some equipment was put into use after the first round of procurement, necessary adjustments were made in the second round. Most of the furniture was locally procured and except for a few items at Madang, what was produced was well up to specifications. The furniture is generally regarded as appropriate (PCR, paras. 3.11-3.13). -5- Project Coordination 15. On the. whole, the project was well implemented and considerable credit is due to the OPC. (PCR, para. 3.04). The OED mission was impressed with the organization and output of this office which is carrying responsibility for a variety of externally funded projects, with minimal staff. It is important for this unit to be strengthened and given greater stability in light of the demands placed upon it. Project Costs and Finance 16. The project was completed as planned, with no major modifications, within the overall estimates. A comparison of the appraisal estimates and actual costs reveals the following for the major categories-civil works and furniture (-13%) professional services (-59%) equipment (+18Z) and technical assistance (-31%). Substantial savings were made in professional services and technical assistance areas partly by the extensive use of DWS and partly because of PNG's salary scales and hiring practices for expatriates (PCR, para. 4.01). Supervision 17. Between January 1977 and March 1982, there were six supervision missions which altogether spent 40 days in the field. Most (5/6) were one-man missions, usually an educator. An architect visited only twice, once in January 1977 and then in December 1979. On the whole supervision was adequate and regarded as helpful by the Borrower (PCR, para. 3.17). Covenants 18. The only covenant unfulfilled concerns recruitment of female trainees and students from less developed areas (Covenant 4.03). Efforts have been made and will no doubt continue to be made, but the problem cannot be solved in the short term. Bank supported projects in primary and secondary education which are on going or proposed are expected to assist in improving recruitment later on (PCR, para. 3.16). III. OPERATING OUTCOMES 19. Because the issues which are judged to be deserving of comment vary from institution to institution, it is considered useful to examine each institution in turn. Other project components are similarly treated. The Highlands Agricultural Training Institute (HATI). 20. Here it was intended to expand capacity from 60 to 200 student places, to begin admitting female trainees and to upgrade extension agents while phasing out untrained staff. Of the 200 places provided, the highest enrollment was 156 (1978). In 1982 the enrollment was 143 of whom 18 were women. There appears to be a lack of qualified applicants and a very small demand from women for such an education. The belief that as farming is done -6- mainly by women, many females would enroll as trainees has not been justified (PCR, paras. 5.02-5.03). 21. Prior' to 1981, most of the graduates found employment with government departments, both national and provincial. Since 1981, however, the scene has changed. Of the 68 graduates in 1981, 25 are still seeking employment while 35 are engaged in the private sector. It is not clear whether they are occupied in agriculturally related activities. 22. Recent manpower type studies suggest that too many certificate holders have been produced and the annual demand at this level, due to recession in the plantation sector as well as restraints on public sector growth, has fallen from an estimated 290 to 180. The new needs perceived relate to improved technical capability and managerial effectiveness and it is proposed to expand higher level agricultural training to degree or three-year diploma level and to enhance in-service training. The HATI, partly because of its central location, has been selected to be in charge of in-service training and as from 1983 will cease to function as it had been originally conceived. College of Allied Health Sciences 23. At this institution, the intention was to increase the enrollment capacity from 120 to 165 and to generally strengthen the training program. Toward this latter end, in addition to some physical upgrading, provision was made for three man-years of advisory services, three and one half years of foreign fellowships and six man-years of local fellowships for curriculum renewal and staff development. 24. For the first few years (1977-1980) enrollment achieved the target of 165 but in 1982 the figure dropped to 117. Female enrollment throughout remained constant at between 15 and 20 (PCR, paras. 5.02-5.03). The graduates of 1980 and the years prior to that were readily absorbed into the Government's service, national and provincial. From 1981, however, serious unemployment has developed. The Government's new policy of curtailing the growth of the public service hits this group particularly hard. A few have been engaged as casual laborers by provincial authorities but most are unemployed as there is no market foi their skills in the private sector. It is most unlikely that the 1981 and 1982 graduates will find employment appropriate to their training in the near future. No new students were admitted in 1983 and future plans for the College or alternative uses for the facilities could not be ascertained. 25. Insofar as upgrading the curriculum is concerned, the review which began in 1979 had not yet been completed. The students are therefore unlikely to have followed a new curriculum either'in the Health Inspectors course or in the Health Extension Officers course. It is believed, however, that changes introduced, while the revision was being undertaken, led to some qualitative improvement. 26. The utilization of the technical assistance (experts and fellowships) was modified with most of the fellowships made tenable overseas. The 9.5 man-years were utilized in training ten people overseas - 7 - and one locally. The provision of three man-years of advisory services was used to recruit two consultants for two years' each. The sanitation expert was regarded as successful but some dissatisfaction was expressed with the choice of the educator (PCR, para. 3.14). Primary Teacher Training College - Madaug 27. At this institution it was agreed to provide an additional 144 places, thus expanding the enrollment capacity from 296 to 440. Upgrading of physical facilities was intended to result in two thirds of the student residential accommodation being made suitable for women. In addition the provision for library, for extra equipment and for books sought to stimulate qualitative improvements in the training programs. 28. The enrollment target of 440 was not achieved in any year between 1977 and 1982 and indeed for the years 1977 to 1979, enrollment was lower than in the preproject period (PCR, paras. 5.02-5.03). Of the 144 additional places provided, only 23%, 41% and 20% were utilized In the years 1980, 1981 and 1982 respectively. The enrollment of women students also remained well below the target. In 1977 female enrollment was 42% while in 1982 it fell to 38%. It had been hoped that many Highlands girls would be encouraged to train as teachers and return to their home districts on graduation, thus alleviating the teacher shortage in these disadvantaged areas but this hope remained largely unfulfilled. In 1976, of the 96 graduates only 3 Highlands girls graduated and returned home while in 1980, of 138 graduates, four Highlands girls did likewise (PCR, paras. 5.02-5.03). 29. Many factors contribute to the shortfall in enrollments. The relative attractiveness of other tertiary level educational opportunities (especially the national high schools), direct employment prospects, and a relatively small pool of qualified grade 10 graduates, country wide, have been advanced as reasons. Social attitudes towards the education of girls not only in the disadvantaged provinces but elsewhere as well, reduce the number of eligible females. Some flexibility has been introduced in respect of admission requirements but this has had no significant impact on the under-enrollment. 30. Although the enrollment targets have not been achieved some commendable innovative work has been attempted with variable class sizes, curriculum renewal and utilization of the library. Goroka Teachers' College 31. Goroka Teachers' College is concerned with preparing secondary school teachers. It is a part of the Faculty of Education of the University of Papua New Guinea and as such comes under the general purview of the University authorities as different from Madang Primary Teachers' College which is the responsibility of the Education Department. 32. The project provided for an expansion of GTC from 430 to 630 (PCR, para. 5.02) places and the introduction of a one-year course to convert primary trained teachers into secondary. It was hoped that the large proportion of expatriate teachers in the secondary schools could be replaced -8- by 1986 thus saving foreign currency and reducing staff turnover. The physical facilities in support of the expansion were also expected to assist in generally enhancing the quality of the programs on offer and in uplifting Goroka to a genuine university level institution. 33. The one-year conversion course which was intended as a temporary measure was initiated in 1977 and terminated in 1981. There were some problems in recruiting suitable students and for two of the five years only the English and Social Science group was admitted. For the rest of the period, a group of teachers of mathematics and science was trained in parallel. Overall the conversion course led to the production of 172 teachers qualified to teach grades 7 and 8. It was suggested to the OED mission that as the teachers had only one year at the College, they did not have sufficient grounding in the subject matter they were required to teach. It was also noted that, at least at the early stages, some of the more effective teachers at the comunity schools (primary) were being taken away and were thus a significant loss at that level. 34. Insofar as the regular program was concerned, the enrollment target of 630 was never achieved. The average enrollment was 70Z of capacity and in 1980, 1981 and 1982 the actual figures were 431, 445 and 453 respectively. It will be recalled that the pre-project capacity was 430 (PCR, para. 5.02). In recent years 30% of the enrollment has consisted of women and the college has been attracting a greater proportion of women than men from the national high schools at grade 12 level. 35. The reasons for the underenrolment are the same as those given before with regard to primary teachers-employers drawing increasingly on grade 10 and 12 school leavers, alternative tertiary education opportunities for grade 10's and the relative unattractiveness of teaching especially in rural parts (PCR, para 5.04). In order to boost enrollment the College has been considering admitting less qualified candidates and extending preliminary studies from one year to two.1/ 36. Prior to 1979, students could select any three subjects but in 1980 in an effort to provide greater depth in the teaching areas, the College reduced the requirement to two subjects. The appraisal expectation that these two would be "related" subjects has not been realized and the OED mission understands that the College is actively considering reducing the requirement even further to one subject. Efforts are being made in the context of the follow-on Secondary Education Project to encourage the study of a minor subject in addition to the principal subject selected for in-depth study. 1/ As the cost of providing the current preliminary year is very high, the draft SAR for the Secondary Education Project recommends that the Department of Education find cost effective alternatives for providing upper secondary education including possibly eliminating the university preliminary year altogether. -9- Lae Technical College 37. The project sought to increase the overall capacity at this College from 585 (in 1975) to about 900 (including pre-employment training), to increase the annual output of technicians from 135 (1975) to 210 (1980) and to relocate the building certificate courses from Port Moresby to Lae (PCR, para. 5.02). It was anticipated that Lae would satisfy the increasing demand for middle level technicians and also contribute to reducing the number of expatriates occupying such positions. Towards these ends physical facilities, workshop and laboratory equipment, library books and eight man-years of specialist services were provided. 38. The relocation of the building industry courses has taken place and Port Moresby Technical College is now concentrating on pre-employment training. It had been hoped that the freed capacity would be devoted to expanded training for skilled workers. 39. While the overall capacity at Lae has been increased, there does not appear to have been a commensurate increase in enrollment. For purposes of comparison, first semester figures only are used. In 1982 there were 387 trainees enrolled; in 1979, 1980 and 1981, the corresponding figures were 421, 368 and 423. Insofar as the output of technicians is concerned, the figures for 1979, 1980 and 1981 were 107, 85 and 102. It will be recalled that the target was 210 and even in 1975 (pre-project) the output was 135. 40. Unlike the situation discussed with regard to the other institutions mentioned earlier, the problem affecting enrollment at the certificate level is not so much a shortage of grade 10 leavers as the prevailing system for sponsoring trainees. Employers find. it expensive to pay for the trainee while he is in college as well as for his replacement and they are somewhat reluctant to provide sponsorship as -bonding" does not take place (PCR, para. 5.04). Day release methods or self sponsorship are not practical alternatives in this situation. A few Government departments send trainees to the College on a regular basis but private firms find it more difficult to do so. Employment problems do not arise as most of the graduates are already employed before enrolling. Moreover, it is reported that there is keen competition between the public and private sectors for trained technicians. 41. There is no doubt that the demand is there and that the College has the capacity to produce more technicians (e.g., 40% of male dormitory space is unused.) There is an urgent need for a review of the situation and for the development of a program whereby specific incentives are provided to get mor- trainees into techical/vocational courses. 42. The eight man-years of specialist services were stretched to nine because recruitment costs were lower than estimated. Experts in civil, mechanical and electrical engineering as well as in building trades were recruited and their contribution to syllabus revision in these areas was highly valued. - 10 - Other Project Components 43. (a) Technical assistance to support a pre-investment study on integrated rural development and community education was provided. Three man-years of specialist services by a rural development economist and an educator were envisaged and the study was to be undertaken through the Central Planning Office. The educator was not hired and the other expert spent 14 months during which time he prepared a report outlining a training strategy for extension workers and for middle and higher level personnel concerned with non-formal education activities. His report led to the establishment of a National Council for Village Development and to the preparation of a project in integrated rural development for UNDP financing but the proposed project did not get off the ground. It has been reported that the village development projects being implemented through the National Council are following a sector by sector pattern rather than the integrated approach recommended (PCR, para. 5.06-5.07). 44. (b) An experimental project in rural nonformal education, concentrated on five vocational centers, and intended to test whether the approaches adopted in these could usefully be employed in improving another 94 such centers was approved and funds amounting to some US$280,000 earmarked for the projects. In the course of implementation, the extension methodology was changed from center based to village based training and although the project experienced several difficulties such as ineffective cooperation among various departments, unsuitable staffing and rapid turnover, the indebtedness of centers, unreliable transport and poor management, sufficient was achieved to justify a renewed effort to provide village based training whereby extension agents actually carry out the training activities in the village setting rather than taking selected villagers to central locations. 45. Over thirty special training exercises were conducted and when evaluated were deemed beneficial, staff localization has been markedly accelerated and in dozens of villages covering thousands of people admirable progress was achieved through self reliance in diversifying crops and livestock, providing water supplies, maintaining machinery, etc. In 16 of the target villages, 88Z of the respondents in a survey expressed preference for the village focussed training over the center approach. Useful guidelines for promoting this kind of village development have been provided in a report entitled Village Development Center Pilot Project2/ (PCR, paras. 5.06-5.07). 46. (c) At the time of project appraisal, the Bank's understanding was that the Government had taken a decision to establish a National Training Council. Two man-years of technical assistance to assist in the establishment of such a council was provided to the Department of Labor and Industry. Apparently the intention was to utilize the first six months on a feasibility study for the proposed council and the remainder of the time was to be devoted to implementation of the report and to establishment of the council. An ILO consultant recruited for three months in 1980 produced the 2/ Written by Dr. Sheldon G. Weeks of the University of the Papua New Guinea. - 11 - report and a tripartite working group was set up to advise the Minister on the most suitable course of action to pursue with regard to the establishment of the Council. The Working party's recommendations, issued in December 1980, are still to be acted upon. The OED mission understands that resources have not been identified for the implementation but that in the meantime apprenticeship legislation is being revised and a scheme worked out for trades testing and certification (PCR, para. 5.09). 47. (d) Two and one-half years of technical assistance was provided to assist the Department of Education (Policy Planning Division) with physical planning and to undertake a mid-term review of the 1975-1980 Education Plan. Some success was experienced in these two areas and further assistance has been included under Credit 1087/Loan 1934 to strengthen planning capability at the provincial level. There appears to be a continued need, however, for improved planning capability at the national level as well (PCR, para. 5.08) and the Region advises that this is being addressed through a study funded under the follow-on project-Credit 1087/Loan 1934. III. SUMMARY AND MAIN CONCLUSIONS 48. The project has been reasonably well implemented at a cost of US$6.6 million or 11% below the appraisal estimates of US$7.4 million. The cost underrun is accounted for by lover than envisaged price escalation, more modest charges for professional services and technical assistance, and the fluctuating value of the Kina. Unutilized credit funds were advantageously used to effect project related improvements (PCR, para. 3.01). The Credit funds were fully disbursed by March 25, 1982, only three months after the original closing date. 49. Insofar as physical implementation is concerned, the DWS performed commendably. The buildings are generally functional and of a good technical standard. Over 8OZ of the total civil works was procured through local competitive bidding. The one exception to the general satisfaction expressed concerns Goroka Teachers' College where there are continuing problems because of an initial weak design and poor workmanship. Remedial works undertaken have not been able to eradicate the flaws and the situation calls for substantial structural overhaul (PCR, paras. 3.11 and 3.13). 50. Procurement of equipment and furniture, with minor exceptions, was well managed (PCR, paras. 3.11 and 3.13). 51. In the main, the Project was manpower oriented and the provision of training places (including residential accommodation) was achieved in all of the selected institutions. Regrettably, the enrollments did not keep up with the expansion undertaken. The HATI with 200 places (increased from 60) never enrolled more than 156. The College of A.H.S. expanded by 45 places (120-165), only met the target for three years. Madang Primary Teachers' College did not enroll as many as it did in the pre-project period. Goroka Teachers' College was expanded from 430 to 630, but never registered more than 453 students. Lae Technical has considerable unused capacity. It is noted that in the case of the College of Health Sciences, the Madang Primary Teachers' College and Goroka Teachers' College additional student places were - 12 - provided in excess of the appraisal estimates of the order of 84%, 43% and 75Z respectively (see PCR, para. 3.05, Table 3.1). The OED mission was unable to ascertain the reasons for these expansions and it would appear that as they were achieved within the overall project cost which reflected an underrun, questions arise with regard to appraisal cost estimation. 52. While it is understandable that a newly independent country, espe- cially one with a large number of expatriates in middle level positions, should quickly wish to train its own nationals to take over such positions and the Bank should be responsive in enabling it to do so, the provision of training places and the upgrading of program offerings, do not of themselves result in the achievement of the manpower objectives. The first requirement is to have an adequate number of potential trainees. Clearly there was a miscalculation of the number of people qualified to embark on the training programs or interested in doing so. 53. In Papua New Guinea, the relatively limited development of second- ary education results in a small pool of grade 10 leavers being available. Of these some go directly into employment, others move on to pre-university studies (e.g., through national high schools grades 11 and 12) and the remainder pursue various forms of technical/vocational studies such as are available in the project institutions. Where the original pool is small, this last group is very limited indeed. 54. It is debatable whether without the expansions undertaken, the institutions would have been oversubscribed. Madang was not, Goroka hardly so and HATI and CARS apparently quickly exhausted their potential pre-service intakes, leaving some graduates unemployed. The Lae case is not much different but is somewhat more complicated by the sponsorship issues. 55. In addition to having adequate numbers of trainees, consideration also needs to be given to their employment prospects especially in those fields where heavy reliance is traditionally placed on the public sector and where the private sector is relatively undeveloped. In several countries, especially smaller ones, the growth of the public service is being curtailed and agricultural diplomates and ancillary medical workers who could formerly be easily absorbed are experiencing much more difficulty in doing so. This is also true, in some places, for teachers as the public service becomes "inelastic". 56. The development and expansion of specialized training institutions, especially in small countries, requires very careful planning and close continuous monitoring. Considerable care also has to be exercised in using manpower projections. Manpower estimates frequently indicate numbers likely to be needed where certain patterns and rates of growth are envisaged. These patterns and rates of growth are conditional on*various factors and where they do not eventuate, there can be serious dislocation. One of the important factors, which seldom receives due consideration, concerns the growth of the public service. It is assumed, all too often, that this will take place automatically. In an adjacent country, the realization that 52% of the annual recurrent budget is taken up by the public service has resulted in a total freeze on new recruits. The implications for training institutions are enormous and it is much too simplistic to believe that in - 13 - such situations all training institutions can simply be converted into in-service centers, for in-service training and upgrading is not without its costs. It would seem thAt in designing training institutions for the longer .term, allowances should be made for changing conditions and greater flexibility should be provided for the use of the facilities. 57. The principal lesson emerging from this experience appears to be that the outcome of even a reasonably well executed education project may be significantly affected by national resource limitations. Budgetary constraints reflecting such limitations tend to inhibit the expansion of employment opportunities especially in the public sector, thus reducing the chances for placement of graduates in their chosen profession. These constraints at the national level could perhaps not have been foreseen at the time of project appraisal; but as they are becoming more pronounced and the focus of the Bank's macro-economic policy dialogue with governments, they will have to be given due consideration in the design of new projects supported by the Bank Group. 58. One of the aims of the project was to assist in the localization of staff. Within the project institutions themselves some advance has been made but the process has been slower than anticipated due, in part, to the loss of national staff to other branches of the public service. A notable achievement has been in the provincial high schools where the expatriate staff has been reduced from 50% to 30%. Graduates from Goroka, some of whom did the conversion course, account for the reduction. Had enrollment at Goroka approximated the expanded facilities provided, there would have been an even greater reduction in the number of expatriates required, especially for grades seven and eight. 59. As a first project in a newly independent country, unfamiliar with Bank procedures and practices, there is much that is to be commended in terms of the implementation, execution and supervision. An enthusiastic Project Coordination Unit, supported by the line ministries directly involved, despite frequent staff turnover, performed competently. The individual institutions have undoubtedly benefitted and are better equipped to carry out the middle level training for which they were intended. Hopefully the follow-on projects in primary and secondary education will bear fruit quickly and so feed into the vocationally oriented institutions in order that the original investment in them might be maximized. - 15 - COMIENTS FROM THE BORROWER ATTACHIENT I ZCZC DIST8052 JWS0553 DIST REF : TCP HC OEDOD JWS0553 JBZ017 IN (E/20:35 OUT 02/20:36 FINANCE NE22218 WORLD BANK WASHINGTON DC RE CREDIT-661-PNG PPAR FOR THE ATTENTION OF MR. SHIV KAPUR OED AUDIT REPORT SATISFACTORY AND NO COMMENT TO MAKE. REGARDS ARCH MCARTHUR PROJECT COORDINATION. FINANCE NE22218 =04030529 - 16 -. COMMENTS FRO THE BORRDWER TTAC T IX MSTRY OF EDUCATION, DEPARTMENT OF EDUCATION TELPHOS: 276111 A IM TEILGRAMS: DUCOFF D00KMO MMAT&ML SAG, TBIL: NZ 2210) PosT oFM3L PARIA NEW GUMNA. Mr Shiv S Kapur DATZ: 2 ril1 Director GR3-1-1 Operations Evaluation Department Rlw' GRP-2-1 The World Bank 1818 H Street N W Washington D C 20433 Dear Hr Kapur RE: PROJECT PERFORMNCE AUDIT REPORT - PAPUA NEW GUINEA FIRST EDUCATION PROJECT (CREDIT 661-PNA) Thank you for forwarding to me a copy of the World Bank's Project Performance Audit Report for the Pirot Education Project (Credit 661-PNG). The Department of Education considers the report to be a fair and accurate reflection of the implementation and the outcomes of the project. I am interested to note that the Bank aims to use project evaluation as a means of improving project performance- "learning from past experience" as the report expresses it. The Department of Education as weil can benefit from such an evaluation. In the summnary section (pages v to viii) the report points out, for example, that training secondary teachers in a single subject specialty may be too narrow wbile training them in three subjects may be too superficial. In fact, our training program2e will include a major and a minor as the document recomuends. The department also notes that the report states the need to monitor the capability of the public service to employ graduates of training institutions. The department hopes to control the output of such institutions in part by implementing a slow expansion of Grade Ten secondary leavers w.ho then enter the training institutions. The report also notes that the "bulk of the training" for integrated rural development should be based in the villages as attempted in the Village Development Centre subproject of Education I. It may be possible for the department to develop further this approach through future educational development projectr.. Overall, the report is a helpful document. I hope that both the World Bank and the Department of Education will be able to benefit from it and strengthen future project development. Yours sincerely S G ROAKEINA Secretary for Education - 17 - comNrs FRO THE BORROWER ATTACHNENT III ZCZC DIST2179 JWS0682 DIST REF: TCP MET OEDOD JWS0682 JBYO80 IN 17/00:04 OUT 17/00:07 FINANCE NE22218 DIRECTOR OPERATIONS EVALUATION DEPARTMENT WORLD BANK REURLET MARCH 13 FIRST EDUCATION PROJECT 661 PNG. EDUCATION HAVE REPLIED BY LETTER. REPORT SATISFACTORY TO BOTH NATIONAL PLANNING OFFICE AND FINANCE AND HAVE NO COMMENTS. REGARDS WESTON FOR MIKE ESSEX XXXXX FINANCE, PNG FINANCE NE22218 =05170817 - 19 - PAPUA NEW GUINEA FIRST EDUCATION PROJECT (CREDIT 661-PNG) PROJECT COMPLETION REPORT June 30, 1983 Projects Department East Asia and Pacific Regional Office -21 - 1. INTRODUCTION 1.01 The First Education Project (Cr. 661-PNG) is the first of two Bank Group operations in the education sector in Papua New Guinea. The first project was presented to the Board on October 19, 1976 and signed on November 19, 1976. It became effective in January 1977. A loan of US$6.0 million and a credit of SDR 9.4 million (US$12.0 million) for a second project, the Primary Education Project (Lu. 1934/Cr. 1087), were made in FY81. This second project aims to improve management of education at national and provincial levels, raise quality, and improve access to primary education. A further Bank loan is envisaged for a third project, a secondary education project, which was appraised in April 1983. 1.02 This completion report is based on the findings of a UNESCO mission that visited Papua New Guinea in May-June 1982 and on information from Bank files, the appraisal report, Bank supervision reports, and a draft completion report prepared by the Government. 2. PROJECT BACKGROUND Project Origin 2.01 The project had its inception in April 1970 well before Papua Nev Guinea's independence, but appraisal of the project did not take place until March/April 1976, one year after independence. The Government-s original request was for assistance for a technical education project. The content ot the project underwent a number of revisions after the initial request. The changes in project emphasis were in large part the result of changing priorities within the country as it progresssed towards independence. To help establish priorities the Bank Group recommended that the Government formulate a National Education Plan for 1973-78 so that the project could be incorporated into an overall strategy for education in Papua New Guinea. Ultimately the two parties agreed, however, that a Cabinet-approved education plan would not be a prerequisite for appraising the project. Instead, the Bank Group identified a first project to help the country overcome some immediate shortcomings in the education and training sector./I Following a preappraisal mission in October 1975, the project was prepared by the Government in early 1976 and appraised in March/April 1976. /1 In the event, the Government did prepare an initial five-year plan for development of the education sector, for the period 1975-80. - 22 - Sector Setting 2.02 Structure and Characteristics of Education. In 1976, Papua New Guinea had an education system that was well-developed in many respects. Formal education and training consisted of the primary stage (grades 1-6) with a gross enrollment rate of 56%, the lower secondary stage (grades 7-10) with a gross enrollment rate of 13%, and the upper secondary stage (grades 11 and 12), with a gross enrollment ratio of less than 1%. This was followed by a complex system of higher education, including the University of Papua New Guinea (UPNG) and other post-secondary institutions. The Department of Education (DOE) carried the main responsibility for education, but several other departments provided training within their respective fields, particularly at the post-secondary level. Schools run by numerous church agencies in the country were integrated with those of the Government. Local participation in educational administration was strong and attention was given to relevance of content. Each province had a managing board for each subject. Curricula could thus be adjusted to local needs and attitudes. Further, local government councils and provincial education boards had some degree of administrative and financial independence. 2.03 Issues in Education. Despite its strengths, the education system suffered severe shortcomings. At appraisal, the following were viewed as the main issues to be addressed by the Government: (a) Educational opportunities and enrollments were unequally distributed by geographic location, age and sex. The Government had accorded high priority to the equalization of -opportunities by region but had overlooked disparities by age and- sex. Efforts within rural development, adult and out-of-school education were poorly coordinated and received low priority in financial allocations. A large portion of girls (56%) did not attend primary schools, a fact which was due more to parental attitudes than lack of schools. (b) The system of post-secondary education was overly complex with a proliferation of small-scale training programs and alternate entry routes. (c) There was a high proportion of expatriates in the labor force including that in the education system. This helped to achieve high standards of work, but contributed to high costs, frequent turnover of staff and sometimes insufficient understanding of local requirements. The Government accorded high priority to replacement of expatriates by local staff. Such replacement was particularly urgent in the case of teachers and technical manpower at subprofessional levels. - 23 - (d) A large proportion of civil servants was expected to be young and inexperienced due to rapid replacement of expatriates and expansion of the government service in the period 1975-85. To help maintain the standard of government services the appraisal mission recommended that the Government should: (i) maintain a high level of inspection and supervision; (ii) increase institutional capacity for in-service and re-training courses; and (iii) give particular attention to the - staffing of training institutions. The costs of these actions were expected to be small compared with the savings generated by the programs to replace expatriates. (e) A further area of concern was the high recurrent cost per student at all levels of education. Accelerated replacement of expatriates, a consolidation of institutions and larger class sizes were expected to reduce unit costs. However, since local teachers and administrators were also paid at relatively high rates,/l recurrent costs were expected to remain high for some time despite government efforts to restrain salary increases. Project Objectives 2.04 In broad terms the project had two major objectives: (a) to help meet manpower needs projected by Government for the period 1975-85 in agricultural and health extension, the teaching service (primary, secondary, vocational and technical) and industry (middle-level technicians); and (b) to support educational planning and studies essential to the long-range development of education and training in Papua New Guinea, with particular emphasis on strengthening the planning capability at the provincial level developing a comprehensive approach to rural-oriented training, and simplifying the complex system of industrial training. As an initial lending operation in education in Papua New Guinea, because of general human resource constraints, the project was designed on a small . scale. Total costs were estimated at US$7.4 million, of which IDA financed US$4.0 million. Project Description 2.05 The project items and incremental targets to be achieved by project completion (December 1980) were as follows: 1 e.g., in 1976 a primary school teacher was paid at a rate of 11 times the per capita GNP, as compared to an average of 6.2 for 13 Asian states. - 24 - Table 2. 1: PROJECT ITEMS AND TARGETS FOR -1981 Incremental Student targets for 1981 * places Student Boarding Staff Project Component Grades/e in 1976 places places houses Rural-oriented training Highlands Agricultural Training Institute, /a 11-12 60 140 140 28 College of Allied Health Sciences, Nadang, /b 11-13 120 45 64 12 Five Rural Vocational Centers, /c (7) 300 - - - Teacher training Madang Teachers College (Primary), /c* 11-13 296 144 144 5 Goroka Teachers College (Secondary), /d, /c 11-13 430 200 180 16 Technician training Lae Technical College, /e 11+ 585/f 315 0 8 /a Department of Primary Industries (DOPI), 7b- Department'of Public Health (DOPH). 7c Department of Education (DOE); experimental component. 7r University of Papua New'Guinea (UPNG), We Including a preliminary year, equivalent to grade 11, secondary. /f Overall enrollment including pre-employment training and technicians courses. In addition the project was to finance a preinvestment study on rural and community training; provide technical assistance for educational planning and curriculum development at selected project institutions; and establish a National Training Council. 2.06 The Government undertook to monitor the efficiency of the training institutions with a view toward adjusting their curricula to the needs of the country. Because of scarce local resources for such work this was to be limited to: (a) annual data on the number of applicants, acceptances, enrollments by year of study and graduates; and (b) selected tracer studies, results -of which were expected to have significant implications for the training. - 25 - 3. PROJECT MANAGEMENT AND IKPLEMENTATION Overview 3.01 At appraisal, project Implementation was expected to be completed by December 31, 1980 and disbursements one year later. Despite the variety of project institutions (6) and government agencies (6), the project was fully Implemented and completed largely on schedule. Due to exchange rate fluctuations and over-estimates of technical assistance and construction costs at appraisal, the costs of the project were 11% below the apraisal estimates. Unatilized credit funds were reallocated to finance project-related construction items,/1 estimated at US$0.5 million. The original Closing Date (December 31, fW81) was extended by three months, to March 31, 1982, to allow savings to be reallocated to other categories and final disbursements to be made. Credit Effectiveness 3.02 The Credit Agreement was signed on November 19, 1976, and became effective well within the original period of effectiveness on January 3, 1977. There were no special conditions of effectiveness. Project Management - 3.03 Because of the large umber of government agencies involved in project Implementation,/2 the Government and the Association agreed during negotiations that a Project Management Committee (PC) be established to oversee and guide project implementation. This committee was established prior to credit. effectiveness. Members of the PMC included the Secretary of Education (Chairman), Secretaries for Finance, National Works and Supply, Primary Industry (Agriculture) and Health and the Vice Chancellor of the UPNG. Day-to-day project implementation was the responsibility of the existing Office of Project Coordination (OPC) in the Department of Finance. Its staff was strengthened with a coordinator, project manager, an accountant and an architect. The Department of Works and Supply (DWS) was entrusted with responsibility for the procurement of equipment and design, tendering and supervision of construction (with the exception of Goroka Teachers' College,. which managed its own construction program). /1 These items included: (a) Madang College of Allied Health Sciences: libarary extension and laboratory; (b) Madang Primary Teacher Training College: storage and water systems; (c) Goroka Teacher Training College: earthquake damage reconstruction; and (d) Lae Technical College: library extension and instructional equipment. /2 The following entities were beneficiaries of the project: the DOE, the DOPE, the DOPI, the National Planning Office, the Department of Labor and the UPNG. -26-- 3.0a The OPC team performed efficiently despite high staff turnover. This is evidenced by the fact that the project was completed on time, basically in accordance with original parameters and within the available budget. Because of staff turnover and the location of the Implementation unit outside of relevant line agencies, institutional memory is, however, short. The project was implemented by four different project coordinators, five project managers and three architects. The management team was therefore heavily dependent on written records. These records were accurate, but frequently lacked desirable details. Provision of Physical Facilities 3.05 As shown in Table 3.1, the project met or exceeded most of its targets in terms of creating additional places for students. Boarding and housing places were practically identical with appraisal estimates. Table 3.1: ESTIMATED AND ACTUALLY PROVIDED STUDENT, BOARDING AND HOUSING PLACES Number of Incremental Places Student Boarding Staff Project Institution places % places Z houses z Apprai- Act- Change Apprai- Act- Change Apprai- Act- Change sal ual sal nal sal ual Highlands Agricul- tural Trng. Insti- tute (Mt. Hagen) 140 120 -14 140 136 -3 28 28 nil College of Allied Health Sciences (Nadang) 45 83 +84 /a 64 64 nil 12 12 nil Madang Primary Teacher Training College 140 200 +43 /a 140 144 +3 5 5 nil Goroka Teacher Training College 200 350 +75 /a 180 176 -2 16 16 -nil Lae Technical College 175 175 nil - - - 8 8 nil Total 700 .973 +25 524 520 -1 69 69 nil la Includes additional items and communal facilities excluded from appraisal estimates. - 27 - Professional Services 3.06 Design, tendering and supervision of civil works for the Mt. Hagen Agricultural Training Institute, the Madang College of Allied Health Sciences, the Madang Teacher Training College and the Lae Technical College were executed by the DWS in Port Moresby. Most of the facilities (staff housing, student accommodations, assembly hall) were built according to the standard DWS designs, which were readily available. These utilize locally available lightweight materials (timber and asbestos-cement) and are of a high technical standard. By the very fact that they are "standard designs", they are, however, not always suitable for the varying climatic conditions that exist in the different regions of Papuna New Guinea. Where no standard designs were available (Lae laboratory building and Madang TTC library), the DWS provided functional designs. Regular site supervision was competently carried out by the provincial branches of the DWS. 3.07 For the Goroka Teachers' College component designs were prepared by the UPNG's own architect in collaboration with a private architectural firm. The designs are elaborate and similar to those of UPNG's main campus in Port Moresby, which has a warm, dry climate. The designs are not well suited to the wet, cool Goroka environment and did not take into account Goroka's occasional earthquakes. Design flaws were further compounded by poor work- manship and supervision during construction. These deficiencies necessitated remedial work which was carried out in 1980. Area Standards 3.08 Area standards on a per pupil basis were modest. Appraisal esti- mates provided academic and communal areas per place averaging 7.0 sq m, boarding places of about 7-8 sq m each and staff houses of 79 sq m each house. Areas per place actually built were smaller than estimated for the academic and communal areas (5.6 sq a), slightly larger for boarding places (8.9 sq m) and smaller than original estimates for housing units (60 sq a). Total areas provided are summarized in Table 3.2 which shows that the overall total areas are almost equal to appraisal estimates. Sites 3.09 All project components were extensions to existing institutions and no problems were experienced in site acquisition. Only at Lae is the site rather small and further extension of Lae Technical College would be difficult within current boundaries. Construction 3.10 Three procedures were specified in the Credit Agreement for procure- ment of civil works: local competitive bidding, negotiated contracts and day labor. About 80% of the total value of civil works was procured through local competitive bidding. Negotiated contracts and force account each accounted Table 3.2: ESTIMATED AND ACTUAL TOTAL AREAS (sq m) Academic & Communal Boarding Staff Housing Total Project Institution Appral- Act- Change AppraL- Act- Change AppraL- Act- Change Appra.- Act- Change sal ual sal ual sal ual sat ual Highlands Agricul- tural Trng. Insti- tute (Mt. H1agen) 683 527 -23 /a 743 1,034 +39/a 2,006 1,428 -29 /b 3,432 2,989 -13 College of Allied Health Sciences (Madang) 1,124 1,315 +17 501 451 -10 1,003 720 -28 /a 2,628 2,486 - 5 a Madang Primary Teacher Training College 877 997 +14 1,135 1,050 - 8 418 300 -28 Ic 2,430 2,347 - 3 Goroka Teacher Training College 790 460 -42 /d 1,382 2,084 +51/e 1,269 1,228 - 3 3,441 3,772 +10 Lae Technical College 1,397 1,569 +12 - - - 769 480 -37 /c 2,166 2,049 - 5 Total 4 4,868 ll 3,761 4p619 +23 5,465 49156 -24 14,097 13,643 - 3 /a Due lorgely to a discrepancy between the appraisal report and .the architectural worksheets. /b Floor area is limited, but houses are built on stilts and the open area underneath, not accounted for, is used and provides additional space for outdoor activities. /c Local space standards are below Bank standards. /d Planned relocation of primary school not carried out. /e Space standards higher than these estbeated at appraisal. - 29 - for about 10% of total value of civil works. All contract awards went to local construction firms or locally established foreign firms. Construction quality is generally good and contractors and DUS labor force performed without problems in most instances. Exceptions to this included: (a) plumbing problems at Madang Teacherso College which required installation of water tanks at a late stage and major sewerage repairs after completion of construction; and (b) poor workmanship and inadequate supervision of construction at Goroka Teachers- College which exacerbated weak design and detailing (para. 3.07) of this project item. Four housing units were destroyed in a July 1979 earthquake which at Goroka measured 7.6 on the Mercallis scale. These were rebuilt in 1980 together with other remedial work required to rectify deficiencies; and (c) structural design problems in buildings at Lae Technical College which caused delays in construction. Furniture 3.11 Most furniture was locally procured on the basis of technical drawings and specifications prepared by the DWS. Furniture is generally appropriate; the only exceptions are locally made desks and chairs at the Madang Teacher Training College, which were procured at a low price but did not meet specifications. As a result about 25Z of the desks had to be repaired. Eq uipment 3.12 Equipment procurement was implemented efficiently. Equipment lists were prepared by each institution in early 1977 and finalized in late 1977. A first International Competitive Bidding (ICB) package was advertised in late 1977 and publicly opened at the Supply and Tenders Board on January 11, 1978, i.e., exactly one year after the Credit became effective. A second round of procurement, which consisted mostly of additional instructional equipment for the Lae Technical Training College, was procured through ICB during 1980. 3.13 As equipment was brought into use after the first round of pro- curement, gaps became evident to its urcrs. The second round of procure- ment rectified these gaps which mainly involved the instructional equipment for Lae Technical Training College referred to in para. 3.12. The now existing equipment is generally appropriate for its intended purpose. Laboratory equipment in particular has been found most appropriate and up-to-date. An exception to this can be found at the Lae Technical College where specifications for lathes were those for light duty equipment with consequent frequent breakdown during use. The experience gained from this procurement exercise indicates that it is helpful to end users if procurement can be carried out in two phases. - 30 - Technical Assistance 3.14 The technical assistance progra implemented under the project is shown in Table 3.3. Consultants recruited to develop the curriculum at Lae Technical College made considerable contributions to improvements in the syllabi. They also provided valuable experience for College staff. Results Table 3.3: THE TECHNICAL ASSISTANCE PROGRAM (Man-months) Specialist Services Fellowships Area of Assistance Appraisal Actual Appraisal Actual estimate estimate Department of Public Health Curriculum Improvement and staff development at the.College of Allied Health Sciences (Madang) 36 50 114 120 Department of Education Initiation and coordination of an experiment including trai- ning of adults at five Rural Vocational Centers 36 38 - Commissioning of equipment and improvement of curricula and teaching methods at Lae 96 119 - Technical College School mapping, physical facil- ity planning and aid-term review of the 1975 Education Plan 30 24 - Central Planning Office Preinvestment study of rural development and community (primary) education 36 16 - Department of Labor, Commerce and Industry Advising and assisting in the establishment of a National Training Council 24 3 - - Total 258 250 114 120 - 31 - of the work of consultants retained by the College of Allied Health Sciences were mixed: a sanitation expert made a valuable contribution to curriculum development while an educator lacked the requisite experience required to provide in-service training for staff, as planned. The overall volume of technical assistance was well in line tith the provisions envisaged at appraisal although there were variations among the different components. The project also included 9.5 man-years of fellowships in health training for staff of the college. The fellowships were fully utilized and 9ppear to have been effective. Three trainees were sent abroad for training which ranged in duration from three months to three years. The results of other technical assistance inputs for studies and planning are discussed under project operating outcomes (paras. 5.06-5.09) Maintenance 3.15 Maintenance work is the responsibility of the DWS but annual main- tenance funds allocated for this purpose are low -- less than 1% of capital costs. It is difficult to carry out regular maintenance work with these funds and work is therefore limited to emergency repairs. Covenants 3.16 The obligations of the Borrower are described under Articles III and IV of the Credit Agreement. All covenants have been fulfilled although Section 4.03(b) - accelerated training of female teachers -- has failed to meet quantitative targets because of lack of suitable candidates. Recruitment of candidates from less-developed areas in particular has shown practically no increase (para. 5.02). Association Performance 3.17 The Association made a total of eight supervision visits to Papua New Guinea during project implementation and UNESCO made the final (comple- tion) visit. This resulted in an average frequency of eight months, at intervals ranging from 3-14 months. Supervision efforts show a reasonable balance between review of management, physical implementation, disbursement performance and educational outcomes. Continuity was good from one mission to the next. Implementation Schedule 3.18 The project was in an advanced state of readiness at the time of Board presentation (October 1976). Tenders for the construction of the agricultural training college (RATI) closed at the time of appraisal in early 1976 and tender documents for construction of most other project items were ready by the time of Board presentation or shortly thereafter. Over 80% of the construction was completed by the end of 1978 and the remaining works -- including remedial work and supplemental work - was carried out in phases during 1979-82. - 32 - 3.19 Procurement of equipment and furniture (paras 3.11-3.13) was well- phased with the construction period and acquisition of technical assistance was with minor exceptions carried out efficiently.- A comparison of estimated and actual implementation is shown in Annex 1. 4. PROJECT COSTS AND FINANCING Capital Costa 4.01 At appraisal, the estimated total project cost, including contin- gencies, was K 5.9 million or US$7.4 million, and the foreign exchange component US$4.1 million or 57% of the total cost. US$4.0 million was to be financed by the Credit and the balance, US$3.4 million, by the Government. Estimated and actual costs are summarized in Table 4.1. Table 4.1: COMPARISON OF ESTIMATED AND ACTUAL COSTS jA Difference between Appraisal Estimate Actual Costs estimated and actual Category of K US$ K US$ costs in percentage expenditure (aillion) X US$ Civil Works and 3.63 4.54 2.93 3.93 -19 -13 Furniture Professional Services 0.18 0.22 0.07 0.09 -61 -59 Equipment 0.84 1.05 0.93 1.24 +10 +18 Technical Assistance 1.26 1.57 0.81 1.08/c -36 -31 Project Administration - - 0.17 0.23 n.a. n.a. Contingencies /b - - * - Total 5.91 7.38 4.91 6.57 -17 -11 /a Completion mission estimates based on available data. 7T Contingencies are divided among categories of expenditure. rc Discrepancy with actual disbursement in this category due to use of an average exchange rate. The difference between estimated and actual costs may be attributed largely to the decreasing value of the Kina against the US$ during most of the implementation period. In addition, unit costs of technical assistance were more than 30% below appraisal estimates because of government hiring practices, which were economical and efficient; and unit costs and price escalation for civil works were lower than estimated. - 33 - Disbursements 4.02 A comparison between planned and actual disbursements is shown in Table 4.2 below: Table 4.2: ESTIHLTED AND ACTUAL DISBURSEMENTS Disbursements per semester Cumulate disbursements IDA Fiscal Planned % Actual 2 Planned Actual Actual as year and US$ of US$ of US$ US$ % of semester (million) Total (million) total -(million)- planned 1977 1st 0.1 2 0.00 0 0.1 0.00 0 2Dd 0.3 8 0.00 0 0.4 0.00 0 1978 1st 0.6 15 0.40 10 1.0 0.40 40 2nd 0.8 20 0.00 0 1.8 0.40 22 1979 1st 0.6 15 0.57 14 2.4- 0.97 40 2nd 0.6 15 0.37 9 3.0 1.34 45 1980 1st 0.6 15 0.48 12 3.6 1.82 51 2nd 0.3 8 1.01 25 3.9 2.83 73 1981 1st 0.1 2 0.10 3 4.0 2.93 73 2nd - - 0.79 20 4.0 3.72 93 1982 1st - - 0.00 0 4.0 3.72 93 2nd - - 0.28 7 4.0 4.00 100 Total 4.0 100 4.00 100 4.0 4.00 100 Slow disbursements were caused by difficulties in gathering the necessary documentation from four ministries. Rapid turnover of staff in the project management unit (para. 3.04) contributed to this situation - each new project manager had to familiarize himself with IDA disbursements and other procedures. The original Closing Date (December 31, 1981) was extended by three months to enable the Government to submit its final disbursement application. By the revised Closing Date (March 31, 1982) the Credit had been fully disbursed. -34- 5. OPER&TING OUTCOMES Attainment of Objectives 5.01 The project had two main objectives: (a) to help meet immediate manpower needs in agricultural and health services, the teaching service and industry; and (b) to support planning and studies for long range development of education and training in Papua New Guinea. A majar emphasis was placed on increasing the participation of females in agricultural training and the teaching service. An objective of the secondary teacher training item was to reduce high recurrent costs of post-primary education by decreasing the share of expatriate teachers employed. The project fell short of =ae.ing many of its quantitative targets. Enrollments have only reached 70% of estimates; enrollments of females are only about 50% of targets and employment opportunities for some graduates are scarce. The project has, however, succeeded in increasing the proportion of local teaching staff in secondary schools and the results of project studies have provided further planning for the education sector. Enrollments and Graduates 5.02 The project has not yet reached its goals in terms of- enrolling the target number of students in the various pre-employment training programs that were strengthened with project inputs. This is shown in Table 5.1 and in Annexes 2-6. Table 5.1: STUDENT ENRO:CUENTS - ESTIMATES VS ACTUAL At Type of Training Appraisal Target Actual Difference (4-3) Grades (1976) (1982) (1982) Number 2 (1) (2) (3) (4) (5) (6) Rural Oriented (a) Agriculture 11-12 60 200 143 - 57 -29% (b) Health 11-13 120 165 117 - 48 -29% (c) Vocational (7) 300 300 - - - Teacher Training (a) Primary 11-12 300 440 324 -116 -26% (b) Secondary 11-13 430 630 453 -117 -28% Technician Training 11+ 170 345 387 + 42 +12% In particular, participation of females has been disappointingly low. In agricultural and health training about 15% of the enrolled students are females, which is only about 50% of the original target. In primary teacher training the female participation rate has ranged between 30Z-40% - well - 35 - below the target of 50Z. Only 3-4 Highlands' girls have graduated annually in recent years from the primary teacherse college. 5.03 The project helped increase the output of graduates for most types of training, but did not meet output targets in view of enrollment shortfalls. This is summarized in Table 5.2. Table 5.2: GRADUATES PER YEAR - ESTIMATED VS ACTUAL Status at Output Actual Difference Type of Graduates Appraisal Target for Output ( 2 - 3 ) (1976) 1982 (1981) Number Z (1) (2) (3) (4) (5) Rural Oriented (a) Agricultural Extension Worker 27 n.a. 68 - - (b) Health Inspector 12 n.a. 19 - - Health Educ. Officer 30 n.a. 22 - - Teacher Training (a) Primary 123 n.a. 160 - - (b) Secondary (i) General } 150 137 - 9% (ii) Vocational } 135 56 42 -12 -21% (iii) Conversion } - 56 22 -34 -61% course } Technician Training 135 210 216 + 6 + 3Z The current 61% shortfall in output of the conversion course from primary to secondary level teachers is the result of a planned phasing out of this course. The conversion course was a successful temporary measure, designed to rapidly increase the cadre of secondary-level teachers by retraining primarylevel teachers in a one-year course. When operational in 1979/80, the conversion course graduated 45-50 teachers per year, slightly less than the target of 56 teachers. 5.04 There are two main reasons for the shortfalls in reaching enrollment and graduate targets established under the project: (a) Shortage of qualified secondary school graduates applying for entrance to project institutions. Inadequate attention by Government and the Bank to supply factors is particularly evident - 36 - in the shortfall in female enrollments in teacher training. At present, only 35% of students in grades -7-10 are female and a share of the grade 10 graduates opt for other types of training or for no further training. More generally, Government's policy of restricting the rate of secondary school expansion had led to insufficient applicants for places in many tertiary institutions, even when entry standards have been lowered. While care needs to be taken in countries as small as Papua New Guinea not to exceed the absorptive capacity of the economy, some possibility for selectivity among applicants to post-secondary institutions or the job market is desirable to speed the replacement of expatriates with qualified national manpower. (b) Inability of the education and training system to respond to changing manpower demand. Requirements for health and agricultural extension staff declined during project faple- mentation, resulting in diminished employment prospects for graduates and fewer applicants for these courses. Despite continuous demand for technicians, inadequate response to problems with financing arrangements led to reduced enrollments at Lae Technical College. Problems included: (1) high costs and uncertain returns to the employers required to release and pay the costs of trainees who may later seek alternative employment; and (ii) high opportunity cost to the self-sponsored trainees. Reducing Recurrent Costs 5.05 To help reduce recurrent costs of the education system the project sought to increase the proportion of local teaching staff. Some progress has been made in respect of increased local participation at the various institu- tions as shown in Table 5.3. Significant progress was also made during the project period to increase the proportion of Papua New Guineans in the teaching force. In 1976, there were about 1,200 teachers in lower secondary schools (now called provincial secondary schools) some 45Z of whom were expatriates./l Current estimates of the provincial high school teaching force put the proportion of expatriates at 27% of total. As a result, a reduction or the order of 25% in the.average teacher's salary (base salary) has been effected. Much of this impact could not have taken place without the secondary-level teacher training component of the project. A Working Papers, Papua New Guinea's Appraisal of a First PNG World Bank Group Education Project (July/September 1976). - 37 - Table 5.3: TEACHING STAFF IN PROJECT INSTITUTIONS - ESTINATED VS ACTUAL Teaching Staff Type of Training At Appraisal (1976) Target Actual (1982) Number for Number Z local 1982 Number % Local Rural Oriented (a) Agriculture 13 23% n.a. 16 69% (b) Health 19 a.a. 30 19 Ia n.a. Teacher Training (a) Primary 26 lb 35% n.a. 23 30% (b) Secondary 39 5% 42 41 30% Technician Training n.a. 14% n.a. 48 19% /a Full-time staff. About 12 part-time staff are also employed. /b 1979. Studies and Planning 5.06 The outcomes of project studies and experiments for which technical assistance was provided, were nixed but on balance successful. An experiment in rural, nonformal education, estimated to cost US$280,000, aimed at improving the effectiveness of existing (94) training centers and strengthening and reorganizing a selected few (5) centers to undertake a variety of expanded training and extension functions. The project fell short of these ambitious objectives for a number of reasons: management difficulties, fragmented responsibilities among ministries, lack of local support and high staff turnover. Extension methodology was changed during the project period from a training center based activity to a village based focus. This change in methodology has been credited with some success and policy guidelines for the establishment of future nonformal training activities have been developed. A coordinating body has also been established to help implement the policy guidelines. This body - The National Council for Village Development - is based in the Prime Minister-s Office and can therefore coordinate activities of the various line ministries. The Council has both a permanent staff and an annual budget for its tasks. - 38 - 5.07 Funds were earmarked for a pre-investment study on integrated rural development and primary (commnity) education. Results suggested that invest- ment in primary education should have higher priority than investment in nonformal education and a Bank Group-financed project in primary education was approved in 1981 (Credit 1087/Loan 1934). This project is being successfully implemented and is in turn paving the way for the proposed secondary education project. 5.08 The Policy Planning Division of the Department of Education was to be strengthened with technical assistance under the project. School mapping and physical facility planning were carried out as intended - initially through funds under Credit 661 and subsequently on an expanded scale in each of the country's 20 provinces under Credit 1087/Loan 1934,whieb is also supporting the preparation of five-year provincial education plans. Technical assistance was also provided under Credit 661 to help undertake a mid-term review of the 1975-80 Education Plan. However, medium and longer-term sectoral planning in Papua New Guinea remains generally weak and the review reportedly did little to strengthen the Education Plan 5.09 A study to review industrial training requirements and establish a national training council was carried out as planned. Recommendations have been used by a tripartite working group that was established in May 1980 and chaired by the Ministry of Labor. While the working group issued its recommendations in December 1980, the training council has not yet been established. In view of existing problems in industrial manpower training (para. 5.04) further work is needed in this respect. PAPUA NEW GUINEA FIRST IUCATION PROJECT Planned and Actual ImpmentalIon Schedulc W 1976 1977 4978 1979 l90 1961 192 u 3 4 1 a 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 32 CML - - - MKS-- - - -4 c - wo hhsnw- Pco sntm n s ... ...gm g.cn @g lg@Rgl oe e cn,t,uctlc,F,a,e .. .... ... ss... s.. ... ... ..... .. CltbumemeTnt Agduk ~ltrl n g T nst ~ut.M ~unt Hogen - - Calogoe eed ealscience.Madang -0 Teacher Tnnng Colege. GMdang ana eachu'Coege.Grka- - - --e bgchngai olo@ege.to- - - - - - - IQLPMim 2. Pepa enolMoaea i e @Tende Documen ... .... . ... ... TEnd 11 ePdO acntrOetAword.. . . . ... ... ... teimenl ss s ********e * - - -- - j- 0-- m,ocIl,t s .. .mis.. ... ss. s.. . . ... ..... .s.. .... s... sass .... ...s. .... sass .............. NOM: iD~spgn p el ration ouplmnay wadkt EfM Dae C~ Deft 3 kebuNdIng paof std housing Lk-ee- --am-"*-- Planed .e...... Wdd BnitN09 As ss sstsu p's asl. ss - 40 - ANE 2 THE IGANDS AGCMTURAL AXN 3ITZT'l MEET AND GRADUA'ES 197 - 1982 Enrolment Graduates M P T M P T 1973 64 - 64 25 - 25 1974- 73 - *73 37 - 37 1975 67 - 67 31 - 31 i976 69 - 69 27 - 27 1977 118 13 131 30 - 30 1978 141 15 156 61 1. 62 1979 123 20 143 52 8 6o 1980 124 20 144 59 6 65 1981 115 18 133 60 8 68 1982 125 18 143 Sources: Goveznment Draft Completion Report and the Institute. - 41 - ANNEK 3 THE aLL1M0 OF T.-T IFEALTH SCIE . EI I1 NT AND ODTT 1979 - 1982 Bi ED 'ital Gra te .1 2 ~3 1 2 3 1 2 3 B MO T S 30 31 23 58 47 43188 78 66 15 39 94 1979 P - 2 - 6 - - 8 - - - - T 30 33 231 58 53 43 188 86 66 15 39 54 N 24 29 28 43 52 38 67 81 66 23 31 54 1980 P 2 - 2 19 - 4 21 - 6 1 2 3 T 26 29 301 62 52 42 88 81 82 124 33 57 4 -19 22 27 48 35 46 67 57 73 119 21 40 1981 F 7 2 - 11 17 2 18 19 2 1 1 T 26 24 271 59 52 48 185 76 75 19 22 41 K 14 14 231 32 29 31 46 43 54 - - - 1982 F 4 5 21 10 9 11 14 14 13 T 28 19 251 42 38 42 60 57 671- - - Source: The College of Allied ealth Seiences. -42- ANNEX 4 M~ W4 ACEER mR1 el ENLIDWT 1f77 - 1g82 Tötal I rn p irat Second To 1 Year Yar Service Service Total M 62 78 140 - 140 1977 57 45 102 - 102 T 119 123 242 - 242 m 87 57 144 18 162 1978 F 35 56 91 6 97 T 122 113 235 24 259 M 134 66 200 - 200 1979 F 55 30 85 - 85 T 189 96 285 - 285 M 133 -93 226 - 226 1980 p 57 45 102 - 102 T 190 138 328 - 328 M 119 112 231 - 231 1981 F 75 48 123 - 123 T 194 160. 354 354 M. 112 88 200 - 200 1982 p 65 59 124 - 124 T 177 147 324 - 324 Source: Madang Tacher Training College. - 43 - ANNEX 5 • GOMMK 'MFAHE2F TRAInD= OM=E ENPIET AND GRADUB 1980 - 1982 - EnroimentGraduates 1980 1981 1982 1980 1981 1982 x 51 95 Preliminary year F 34 27 T 94 85 122 M 60 44 Year one Ex-preliminary . 23 26 T 112 83 70 n M •28 39 Year one Direct Eatry p 21 36 T 35 49 75 N 97 77- Year two p 47 41 - T 108 144 118 103 137 x< 37 401 Vocatianal F 9 10 T 42 46 50 40 42 - .M 18 -- Converslon Course 7 - T 33 25 - 34 22 M4 11 16 - In-service F 2 2 - - T 7 13 18 - 19 m 302 31-1 Total p 143 142 e T 431 445 453 Source: Goroka Teachers Training College. - 44 - AN NEX6 LAB TE~DCCL COLUM ENROLMET 1979 - 1982 1 mi Extension Certificate P E T T . and oters Semester Semestern Semester Semester Semester Semester 1 2 I 1 2 1 2 136 I 83 1979 F 69 69 T 236 205 138 152 l| 47 30 M 164 198 " 80 72 I 1980 F 5 890 89 T 169 2061 170 161 29 12 M 155 213 i 99 87 l 1981 p 2 3 i 89 103 n T ~ 157 2161 188 190 i 78 11 m- 140 104 n 25 1982 F 3 115 - T 143 i 219 25 Source: Lae Technical College.