Jordan - Sixth Education Project

Docmt of The World Bank FOR OMCIAL USE ONLY Rqpt No. 12525 PROJECT COMPLETION REPORT JORDAN SIXTH EDUCATION PROJECT (LOAN 2378-JO) NOVJIE 22, 1993 MICROGRAPHICS Report No: 12525 Type: PCR Population and Human Resources Division Country Department II Kiddle East and North Africa Region This document has a restricted distribution and may be sd by recipients only in the performance of their offical duties. Its contens may not otberwise be disclosed without World Bank, authorization.  CURRENCY ROUIVLENTS Currency Unit - Jordanian Dinar (JD) Appraisal Year Average: US $1 = JD 0.375 (1983) Completion Year Average: US $1 = JD 0.6882 (1993) AB_REVIATIONS DOP Directorate of Projects HRDSIL - Human Resaurces Development Sector investment Loan MOE Ministry of Education MPWH Ministry of Public Works and Housing TA Technical Assistance VTEO Vocational Training and Employment Office  FOR OFFICLAL USE ONLY THE WORLD BANK Washington. D.C. 214 3 U.S.A O0tl. of Dimector4anerai apations Evaluation November 22, 1993 lEMORANDUM TO THE EECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Project Completion Report on Jordan Sixth Education Project (Ln. 2378-JO) Attached is the Project Completion Report on Jordan - Sixth Education Project (Ln. 2378-JO) prepared by the Middle East and North Africa Regional Office. Part II was prepared by the Borrower. Having achieved its major targets of increased access and enhancement of school plant, the project outcome is rated as satisfactory. The project exceeded its major physica; targets of increasing access to basic and diversified secondary education. The objective of increasing access for rural students and girls was achieved but, due to inadequate cultural analysis, girls' enrollments did not expand as fast as school places, which were partly filed instead by boys. Overall school-age population increase is expected, nevertheless, to lead to a continued rise in girls' enrollment. The objective was also achieved of enhancing cost-effectively the physical quality of school classrooms and specialized space, notwithstanding problems with international competitive bidding procurement for small and dispersed school building bid packages, inferior quality of the local building contractor and of the school furniture supply. Non-physical quality inputs, such as staff development, examination reform etc, made less progress, partly due to late start-up of technical assistance and training. Physical targets, made possible largely with cost savings arising from devaluation, were expanded near the end of the project, but with a consequent protracted delay in project closing. Institutional development was only partial largely due to delays and non-implementation of technical assistance and fellowships and numerous changes in the roles and responsibilities of government agencies for the project. Government commitment to use of the loan for technical assistance and the incapacity of potential fellowship-holders in English language were not adequately appraised and necessitated time-consuming adjustments during implementation, including a search for grant aid and local and regional technical assistance sources. Despite this weakness, sustainability is licely because two subsequent projects further advance the Government's human resource development strategy, and increased costs arising from the increased access and further prospective quality enhancements are not considered of such magnitude as to cause undue budgetary stress. The conclusions of the PCR Part I are adequately argued and supported by data. More policy-related background on the adequacy of the diversified (academic with vocational) school strategy in the country context would have been a worthwhile additional contribution, given that issues surrounding the viability of diversified secondary education continue to concern the Bank and Borrowers. An audit is planned for this project as a cluster with two later projects. Attachment (1:~ uThis document has a ycntd othrwibuson and ay be used by WopleBnt only in .e iommac d their t ;cid m dufee. ts contents may not othemrAse be disclosed wiFout Wodd i3ank authofzation.  FOR OFFMCLl USE ONLY THE HASEEMITE KINGDOM OF JORDAN PROJECT COMPLETION REPORT SIXTH EDUCATION PROJECT (Loan 2378-JO) TABLE OF CONTENTS Pacre No. Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Evaluation Summary . . . . . . . . . . . . . . . . . . . . .i.i. I. PROJECT REVIEW FROM BANK'S PERSPECTIVE . . . . . . . . . . . . . . .1 A. Project Identity . . . . . . . . . . . . . . . . . . . 1 . . . . . B. Project Background . . . . . . . . . . . . . . . . . . . . . . . .1 C. Project Objectives and Description . . . . . . . . . . . . . . . . 2 D. Project Design and Organization . . . . . . . . . . . . . . . . . 2 E. Project Implementation . . . . . . . . . . . . . . . . . . . . . . 3 Implementation Schedule . . . . . . . . . . . . . . . . . . . . 3 Project Management.. ................. 4 Procurement . . . . . . . . . . . . . . . . . . . . . . . . . . 4 P. Project Costs and Loan Allocations . . . . . . . . . . . . . . . . 5 G. Project Results . . . . . . . . . . . . . . . . . . . . . . . . . 5 Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 New Compulsory and General Secondary Schools . . . . . . . . . 6 Extensions . . . . . . . . . . . . . . . . . . . . . . . . . . 7 H. Project Sustainability . . . . . . . . . . . . . . . . . . . . . . 7 I. Bank Performance during Project Cycle . . . . . . . . . . . . . . S J. Borrower Performance during Project Cycle . . . . . . . . . . . . 8 K. Project Relationships . . . . . . .. . . . . . . . . . . . . . . . 9 L. Consulting Services . . . . . . . . . . . . . ... . . . . . . . . 9 M. Project Documentation and Data . . . . . . . . . . . . . . . . . . 10 N. Conclusions and Lessons Learned . . . . . . . . . . . . . . . . . 10 II PROJECT REVIEW FROM BORROWER'S PERSPECTIVE . . . . . . . . . . . . . 12 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-te disclosed without World Bank authorization.  ItI STATISTICAL !nORMATION . . . . . . . . . . . . . . . . . . . . . . . 13 TABLa 1: IBRD Loans Relevant to the Project ... . . . . . . . . . 13 TABLE 2: Planned, Revised, and Actual Dates of Project Timetable . . . . . . . . . . . . . . . . . . 14 TABLE 3: Cumulativ Estimated and Actual Disbursements ............ . . . . . . . . .. IS TABLE 4: Project Implementation: Key Project Indicators . . . . . . 16 TABLE 5: Project Costs . . . . . . . . . . . . . . . . . . . . . . . 17 TABLE 6: Project Financing . . . . . . ... . . . . . . . . . . . . . 17 TABLE 7: Allocation of Loan Proceeds . . . . . . . . . . . . . . . . 18 TABLE 8: Direct Benefits of Project:Enrollments in Project Institutions. ............... . 19 TABLE 9: Compliance with Loan Covenants . . . . . . . . . . . . . . 20 TABLE 10 Mission Data by Stages of Project . . . . . . . . . . . . . 21 Annex 1: Participants in Completion Mission . . . . . . . . . . . . 22 MAP - IBPD 17475 R  PROJECT COMPLETION REPORT JORDAN SIXTH EDUCA?9TI PROJECT >ILOAN 2378-JO) This is the Project Completion Report (PCR) for the Sixth Education Project in Jordan, for which Loan 2378-JO in the amount of US$ 40.0 million was approved on February 2, 1984 and the agreement was signed on March 8, 1984. The loan closed on May 31, 1993 after four extensions of the Closing Date (the original Closing Date was December 31, 1989). Actual disbursements were about US$37.38 million, about US$2.62 million short of the original loan amount. The PCR was prepared by the Population and Human Resources Division of the Middle East and North Africa Region (Preface, Evaluation Summary, Part I, Part III). On April 18, 1993, the Bank gave the Borrower Parts I and III with the request to prepare Part II by June 15, 1993, but no reply has been received. The preparation of this was started during the Bank's final supervision mission of the project in February 1993, and is based on information contained in the Staff Appraisal Report, the Loan Agreement, supervision reports, correspondence between the Bank and the Borrower, internal Bank Memoranda, and discussions with Bank and Borrower staff.  - iii - THE HASHEMITS KINGDOMQOF JORDAN SIXTH EDUCATION PROJECT (GENERAL EDUCA?ION) (LOAN 2378-JO) PROJECT COMPLETION REPORT EVALUATION SUMMARY Introduction i. Jordans GDP grew rapidly (nine percent per annum) during the late 1970s and early 19809. Substantial employment opportunities were available in neighboring oil-rich countries for relatively well educated and trained Jordanian labor, generating large inflows of remittance income. GIven Jordan's limited natural resources, economic and educational planners were convinced that human resources were the country's most important productive asset and, therefore, that investment in education and training should be given top priority. ii. In line with this strategy, the Bank continued its support to Jordan's educational development effort which started in the early 1970s, and the Fourth, Fifth and Sixth Education Projects were approved in rapid succession (December 1981, March 1983, and February 1984, respectively). The first two dealt mainly with training, while the Sixth Education Project focused on expansion and quality improvement of general education. Project Obiectives iii. The project objectives were to support key elements of the Government's five-year educational development plan and to facilitate the expansion and improve the conditions of compulsory and general secondary schools while enhancing prevocational programs and continuing the effort to strengthen MOE's institutional capacity. These goals were to be achieved through: (a) constructing, equipping and furnishing 31 compulsory and 16 general secondary schools; (b) constructing, equipping and furnishing 48 additional science laboratories, 49 additional libraries, snd 50 additional multi-purpose workshops for existing upper secondary schools; and (c) technical assistance in support of project objectives, including fellowships for instructor training and institution building, together with specialist services for in-service teacher training, and for pre-investment studies for a possible follow-up project. During implementation, the project was modified to (a) include six additional compulsory schools (March, 1988); and (b) construct laboratories, multipurpose workshops, libraries and audiovisual rooms (specialized facilities) for 52 existing general secondary schools (April 1992). implementation Exoerience iv. Implementation of the original physical components was smooth and on schedule, but there-were long delays in the implementation of technical assistance and the additional physical components introduced during project  -iv- implementation. Some of the main issues encountered during implementation included: (a) problems in project management caused by changes in the Project Implementation Directorate; (b) procurement problems in dealing with deficient deliveries; (c) long delays in the implementation of technical assistance, starting with the search for external financing sources and continuing because of inadequate proficiency of fellowship candidates in the English language, coupled with lengthy bureaucratic procedures and unfavorable political conditions; (d) delays in the implementation of the additional components, in particular of the 52 extensions added in April 1992, because of difficulties in getting contractors to bid for small projects scattered throughout the country, and of administrative changes in school construction arrangements; (e) problems with the quality of some locally manufactured fxrniture; and (f) lower than expected enrollments in the project's compulsory schools for girls. V. All issues were successfully resolved by the Government in close collaboration with Bank supervision missions, except for the delays in the implementation of the additional physical component which resulted in four extensions of the Closing Date of the project; and for a small part of the S2 extensions added in April 1992 which were not completed by the final Closing Date of May 31, 1993.- Two extensions of the terminal date for Loan Effectiveness were needed due to delays in the completion of ratification of the legal documents by Parliament, so the 8ffectiveness date (December 11, 1984) was about five months after the original estimated date of Effectiveness. Prolect Results- vi. Despite delays in the execution of the additional physical components and in the implementation of the TA program, the Sixth Education project was successful, as it helped to: (a) increase the capacity of the education system--of the 50,200 student places provided, about 40 percent were for new enrollments; (b) enhance female participation--some 67 percent of the total places provided were for females; (c) improve the quality of instruction by replacing rented schools and reducing double shifting--46 rented schools were closed and double shifting was eliminated from 18 schools; (d) promote science teaching and pre-vocational instruction, mainly through the laboratories and workshops provided and the instructor training program; and {e) strengthen the institutional capacity of MO4, through the institution building fellowship program. vii. Content and timing were also appropriate, as the project dealt mainly with general education at a time when the demand for skilled labor in the local and neighboring markets started to diminish. Despite the long delays encountered, implementation of technical assistance was successful and helped to enhance the institutional capacity of MOE and pre-vocational instruction. Delays in the implementation of the additional physical components (six additional compulsory schools and additions for 52 existing general secondary schools) were, to a large extent, due to reasons beyond MO4s control. Finally, excellent collaboration was achieved between Government officials at all levels and Bank supervision missions.  Prolect Sustainabilitv viii. The fact that the project is fully integrated into the educational system, to which the Government attaches high priority, will help assure its sustainability. When the project schools reach their full capacity, the additional recurrent expenditures required for their operation will be of the order of JD 19. million, or 2.1% of the MOE's recurrent budget. Future strengthening of the school building maintenance system will be a key element in ensuring the project's sustainability. Lessons Learned ix. The two main lessons learned from the implementation of this project can be summarized as follows: (a) adding components, even when Government assurances are received that additional works would be completed in a timely fashion (as in the case of this project), should be very carefully scrutinized and should be - subject to strict timetables if approved (para. 12); and (b) estimating enrollment growth by sex for project schools is a complicated process and factors such as past trends, culture, and regional variations should be carefully taken into account (para. 23).  PROJECT COMPLETION RPOR SIXTH EDUCATION PROJECT (LOAN 2378-JO) PRMT I PROJECT REVIEW FROM BANK' S PERSPECIVE A. Proiect Identity Project Name: Sixth Education Project Loan Number 2378-jO RVP Unit :Middle East and North Africa Region, Country Department II Country The Hashemite Kingdom of Jordan Sector : Education Sub-sector General S. Proi ect Backaround 1. In view of its sparse endowment of water and mineral resources, Jordan's most important productive asset is its human capital. The rapid economic growth (nine percent per annum) experienced in the late 1970s and early 1980s and the lucrative employment opportunities for well qualified Jordanian manpower in the oil-exporting Gulf countries (with consequent high levels of foreign exchange remittances), led the Government to invest heavily in education and training. The 1981-85 Development Plan allocated the equivalent of US$650 million to investment in education and US$30 million to investment in training, corresponding to some five percent of GNP. 2. The Governmentvs strong commitment to human resources development was evident in the progress achieved in improving access to education. Between 1975 and 1982, enrollments increased by about 30 percent at the primary level (grades one to six), 88 percent at the preparatory level (grades seven to nine), and 178 percent at the secondary level (grades 10-12). During the same period, female enrollments as a percentage of total enrollments rose from 46 percent to 48 percent at the primary level, from 43 percent to 46 percent at the preparatory level, and from 37 percent to 46 percent at the secondary level. 3. The principal priorities of the 1981-85 Plan for Education were to: (a) expand compulsory schooling (grades one to nine) from 91 percent of the relevant age group in 1980 to 94 percent in 1985; (b) expand the access of children from rural families to preparatory and secondary grades: (c) improve the quality of education, particularly in science, by providing adequate laboratories, teaching materials and libraries, upgrading teacher  2- qualifications, replacing rented schools, and ellmiamting double shifting; (d) increase female participation at the compulsory and secondary levels; (e) generalize the pilot program of prevocational instruction in grades five through twelve; and (f) provide the necessary trained manpower to meet the evolving demands of the Jordanian economy and of other Arab countries. 4. The Bank was ready to support the Government's Bducation Development Plan with new lending. The sixth Education Project was conceived in early 1982 together with the Fifth Education Project. At that time, it was decided that the Bank's participation should be in the form of two operations (Education V and Education VI), in rapid succession to each other, rather than in one larger operation. This would allow greater flexibility to potential cofinanciars, avoid overtaxing the MOE's implementation capacity, and permit the speedy construction of a nuxaber of schools for which sites were already available. C. Proeet Wectives and Descrintion S. The Sixth Education Project (Loan 2378-JO) was approved on February 2, 1984. Its main objectives were to support key elements of the Five-year Plan, particularly to facilitate the expansion and improve the conditions of compulsory and general secondary schools while enhancing implementation of pre-vocational programs. It also continued the effort initiated in earlier projects to strengthen MOE's institutional capacity in project preparation and implementation. 7. Project objectives were to be achieved through: (a) constructing, equipping and furnishing 31 compulsory and 16 general secondary schools (some 28,000 and 16,000 student places, respectively); (b) constructing, equipping and furnishing 48 additional science laboratories, 49 additional libraries and 50 multi-purpose workshops for 53 existing upper general secondary schools; and (c) technical assistance in support of project objectives, namely fellowships for instructor training and institution building, together with specialist services for in-service teacher training and for pre-investment studies leading to future lending. 8. During implementation the project was modified, at the request of the Government, to include construction, equipping and furnishing of six additional compulsory schools (February 1988), and laboratories, multi-purpose workshops, libraries and audiovisual rooms for approximately 52 existing general secondary schools (April 1992). D. Pro1ect Desion and Oruanization 9. The project's design was clear and understood by all parties. It was designed to contribute to the Government's educational goals, in particular: (a) expand compulsory schooling: about one-half of the student places proposed were to absorb additional enrollments; (b) improve the  -3- conditions of education, through the replacement of rented schools, reduction of double shifts, and provision of specialized facilities; (c) raise female participation (about two-thirds of tnie places at the compulsory level and 40 percent at the secondary level were for girls); and (d) generalize pre- vocational instruction through the provision of multi-purpose workshops and fellowships for instructo; training. 10. The main innovative element in the project was the instructor fellowship program which was, for the first time, entrusted to an Arab country (Tunisia). Also, an improved school construction model was adopted, developed by Yarmouk University with considerable input from the Bank. E. Project Implementation Imnlementation Schedule 11. Two extensions of the terminal date for Loan effectiveness were needed due to delays in the completion of ratification of the legal documents by the Jordanian Parliament, so the actual Effectiveness date (December 11, 1984) was about five months after the original estimated Effectiveness date. construction of the original civil works components of the project was completed by November 1988, some 13 montlie prior to the project's original closing Date, as foreseen at appraisal. Furniture and equipment were procured with some three months' Aelay compared to the appraisal schedule, but about two months ahead of the original Closing Date. At appraisal, a sum of US$ 1.7 million was included for Bank financing of technical but, at the Government's request, a grant from USAID was substituted for this purpose. Technical assistance was implemented to a large extent, although with long delays caused by lengthy negotiations with the funding agency and low proficiency in the English language of fellowship candidates, coupled with the exogenous political conditions created by the Gulf crisis. 12. These delays, together with the insertion of additional components during project implementation (six compulsory schools in February 1988 and 52 specialized facilities blocks in April 1992), resulted in four extensions of the project's Closing Date (from December 31, 1989 to December 31, 1990; to December 31, 1991; to December 31, 1992 and to May 31, 1993). Implementation of technical assistance was effectively completed in December 1992. Construction of the six additional schools was completed in March 1992. Construction of the specialized facilities is still underway; most (40 out of 52) have been completed, but 12 were at different stages of completion by the final Closing Date of May 31, 1993. The Bank's financing share for the uncompleted work, estimated at some US$ 0.3 million, will be borne by the Government. 13. Delays in construction were caused by site problems at two of the six additional compulsory schools, together with the consequences of the Gulf crisis, the split of responsibility for school construction between MOE and the Ministry of Public Works and Housing, and difficulties in getting contractors to bid for small projects scattered throughout the country, which hindered the timely completion of the additional specialized facilities.  -4- Prolect Management 14. With the exception of the troubled implementation of the technical assistance component and delays in construction of the additional physical components, overall project management was satisfactory. 15. In 14ovember 1987, the Directorate of Projects (DOP), which had exclusive responsibility for the implementation of Bank projects and was accountable to the MOE Secretary General, was dissolved, and the General Directorate of Projects and School Buildings was created with three major Directorates: Engineering Affairs (responsible for all school buildings), School Building Services (responsible for school maintenance and rentals), and Project Services (responsible for technical assistance, procurement and accounting in Bank projects). This change was acceptable to the Bank. However, further changes caused difficulties. 16. In April, 1990, the main responsibility for school construction was transferred from MOE to the Ministry of Public Works and Housing (MPWH) with the former having merely a consultative role. Implementation problems associated with the many and diverse priorities of MPWH resulting from the split of inter-ministerial responsibility contributed substantially to the slow completion of the additional component of 52 specialized facilities. In addition, in August 1991, the Directorate of Project Services was dissolved, with the Division of Technical Assistance transferred to the Directorate of Cultural Affairs, and the Divisions of Procurement and Project Accounts to the Directorates of Supplies and Accounts respectively, under the General Directorate of Financial Affairs. This change left the Bank without a direct counterpart for project management and coordination. Bank supervision missions in December 1991 and July 1992 discussed this problem with the competent authorities and these decisions were duly reversed: the Project Services Directorate was re-established in December 1991, and responsibility for school construction was reinstated with the MOE in October 1992. Procurement 17. Procurement procedures were adequate and in conformity with Bank guidelines. One problem, however, surfrzed during project implementation: MOE officials pointed out that the payment policy for imported items (which was to advance 100* of the agreed sum upon presentation of shipping documents), left the Government no leverage for coping with items which were defective or did not comply with technical specifications. To resolve this problem, they proposed that: (a) only 70% of the total amount be paid upon presentation of the shipping documents; (bl a black-list of non-reliable companies be established; and (c) the requirement for full representation of foreign firms by local agencies be strengthened. The July 1992 Bank supervision mission pointed out that the 100l payment policy was a Government decision and that the current Bank procurement guidelines stipulate only that advance payment should be in line with international commercial practices applicable to the goods and works and the market in question, and that bidding documents should specify the payment method and terms offered. The mission also explained that the Bank has no objection to black-listing unreliable companies or to strengthening local representation.  -s- 18. The Government studied the situation and informed the Bank that the practice had been changed and that 20 percent of the contract amount would be withheld until inspection and acceptance of goods; local representation had been mandatory. However, the practice of blacklisting -unreliable companies, although applied unofficially, did not yield the expected results, as many companies with problems submitted subsequent bids under different names. P. Proiect Costs and Loan Allocations 19. The total estimated cost of the project at appraisal was US$122.0 million, including 33.8 percent physical and price contingencies. The foreign exchange component was estimated at US$61.2 million or 50.2 percent of the total and the Bank loan was for US$40.0 million. The Government secured US$9.7 million from the Islamic Bank for the financing of secondary school construction and a grant of US$0.6 million from USAID for technical assistance. 20. There were large cost under-runs. Despite the construction of six additional compuisory schools and 52 extensions of specialized facilities, total project costs were only about US$103 million, considerably lower than the UE$122 million estimated at appraisal. With respect to the Bank's US$40.0 millicn loan, US$37.4 million (or 94 percent of the loan amount) were disbursed. The main reasons for the disbursement shortfalls were: (a) the fact that the US$ 1.7 million foreseen for technical assistance was not used for this purpose (para. 11); and (b) overall contingencies were overestimated at appraisal, as there were unit cost changes resulting from the devaluation of the Jordanian Dinar during the project implementation period. In fact, constructiou costs remained practically constant throughout the project and the average cost per student place, including contingencies and professional fees, was similar to that estimated at appraisal net of contingencies and professional fees. G. Proiect Results Overview 21. The overall objectives of the Sixth Education Project were achieved. The project increased the capacity of the education system; promoted female participation (about 67 percent of student places provided were for girls); and improved schooling conditions and education quality by replacing rented facilities, reducing double shifting, and providing specialized facilities to schools. In addition, 13 out of the 37 compulsory schools and 11 out of the 16 secondary schools are in small towns and rural areas, thus contributing to improved access to education. By 1990, the overall participation rate of the 6-15 year old population reached 94.2 rercent and female participation reached 48.4 percent of the total at the compulsory level (grades one to ten) and 51.2 percent in general secondary education (grades 11-12), but lagged behind in vocational education (34.6 percent). The average female participation in secondary education was 47 percent.  22. As already noted, the project encountered long delays in the implementation of technical assistance and delays in the implementation of the additional components and in particular of the 52 extensions added in April 1992. The project also experienced problems with the quality of some locally manufactured furniture and lower than expected enrollments Irl the compulsory schools for girls financed under the project. 23. The technical assistance nroblem appears to be endemic and stems from the Government's policy of seeking grant financing for technical assistance. Long negotiations of the TA contract with USAID, coupled with cumbersome bureaucratic procedures, a slow implementation pace and the 1990/91 Gulf Crisis were the main reasons for the observed delays. Delays in the im,lementation of the 52 extensions stem mainly from the split of responsibility for school construction between MOE and MPWH and difficulties in getting contractors to bid for small-size projects scattered throughout the country. Although the split of responsibility problem has been resolved, there are still some organizational problems within the M0E which need to be resolved. In fact, a reorganization of the Engineering Affairs Directorate, including decentralization at the Governorate level, is undexway. In general, the auality of locally manufactured furniture is uneven, depending on the contractor. Supervision missions have observed that a number of pieces of furniture (desks, stools and chairs) supplied to project schools were of inferior quality and had to be repaired repeatedly. Enrollments in cairls comnulsorv schools are only 66 percent of those estimated at appraisal, due to insufficient demand. This appears to be the result of excessive optimism during appraisal in supporting innovative policy trends, as there was no apparent justification for female student places to be 79 percent of the total to be provided, as opposed to the enrollment increases which were actually achieved (para. 21). New Comwulsory and General Secondary Schools 24. The sites visited by the supervision missions were well selected and located and the layouts provided pleasant environments appropriate to their functional requirements. The buildings are well planned and provide the necessary facilities, but some of the secondary school playgrounds were found to be small. In general, construction was well carried out and adequately supervised. 25. The new student places provided roughly correspond to the appraisal estimates (44,180 provided as against 44,530 proposed), plus 6000 places provided by the six additional compulsory schools. However, compulsory (now called basic) schools, now include ten grades and secondary schools two grades, as opposed to nine and three, respectively, at the time of appraisal. It appears that some of the secondary schools also accommodate some basic school grades and vice versa, especially in areas where children of returnees from the Gulf states following the Gulf crisis had to be urgently absorbed. At present, enrollments in basic schools (a total of some 27,600 including the six additional schools) are about 80 percent of those envisaged at appraisal. Female enrollments are or.ly 66 percent of those estimated, but some schools still have an incomplete number of grades. On the othar hand, male enrollments in basic schools exceeded the appraisal target by 33 percent. In  -7 secondary schools, enrollments (some 14,200) are 90 percent of those estimated, about equally divided between girls and boys. 26. The project aimed to improve the quality of instruction by replacing rented schools (some 150 classrooms in the basic cycle and 110 in the secondary cycle) and by reducing double shifting. Both goals were achieved satisfactorily. Overall, 46 rented schools have been replaced, including some 160 basic cycle and 120 secondary cycle classrooms. Double shifting was eliminated from 23 schools, but five of the project schools are running a second shift. 27. The gross area per student place is slightly lower than proposed at appraisal for the basic cycle (4.3 square meters as against 4.51 but identical to appraisal estimates (4.9 square meters) for the secondary cycle. Construction costs were similar to appraisal estimates for both levels of schools, but furniture and equipment costs were only 51 percent of those estimated for basic schools and 54.5 percent of the estimates for secondary schools. Despite these lower than estimated costs, equipment is adequate. Extensions 28. Extensions originally included in the project were completed on schedule (July 1988) and provided valuable facilities to existing schools. If the use of such facilities is properly programmed, they will enable the extended schools to accommodate some 2000-2500 additional students. The multi-purpose workshops are actively used for pre-vocational instruction, and several schools are also using these facilities in out-of-school hours for community activities. Of the 52 extensions added to the project in April 1992, only 40 were completed by the final Closing Date (May 31,1993) and the Government will bear the total costs for the remaining construction work. All furniture and equipment has been purchased. H. Proiect Sustainabilitv 29. Basic and general secondary schools constitute the backbone of the education system and adequate facilities are important for good quality instruction. Project schools will all soon reach their target enrollments, and the expenditures for their operation will be equalized with the norm for the education system, estimated at an average of JD 102 per student year (JD 98 for basic and 144 for general secondary) at 1990 prices. When the project schools (including the six additional compulsory schools) reach their full capacity, the total expenditure required for their operation will be about J3T 5.5 million, allowing a 10 percent increase for improved instruction. However, as some 16,000 of the basic school places and 12,000 of secondary school places are taken by students who were already in the system (rented schools), the additional recurrent expenditures will be only about JD 1.9 million or 2.1 percent of the MOE recurrent budget, but some additional JD 98,000 per annum will be saved from rentals. 30. In the future, the education quality improvement policy pursued by the Educational Reform through the provision of specialized facilities,  curricula revision, introduction of new textbooks, and teacher upgrading and updating, is bound to raise the per-student cost of education for the whole education system. However, the fact that the project is fully integrated into the educational system will help assure its sustainability. Investment in education and training remains among the Government's top priorities, so financing is expected to be forthcoming. The school maintenance problem needs to be given further attention. I. Bank Performance durinu Proiect Cycle 31. Bank performance in the conceptualization and implementation of the Sixth Education Project was satisfactory. Both the objectives and the content of the project were appropriate and contributed substantially to improving the Government's education strategy. In order to further contribute to the educational objectives of the project, the Bank agreed to amend the loan agreement twice to include additional physical components (six additional compulsory schools and 52 extensions consisting of laboratories, libraries, workshops, and audiovisual rooms). Also, the Bank responded promptly to a request from the Government to accept USAID financing of technical assistance and to replace foreign specialist services with local services. J. Borrower Performance durine Proiect Cycle 32. MOE acted promptly in expediting actions necessary for project processing, and the original physical project components were completed broadly on schedule. Delays in the implementation of technical assistance were outside MOE's control, as the decision not to use project funds for this purpose was part of overall Government policy. Once the instructor training program was re-launched in April 1992, MOE's management was exemplary in collaborating with USAID to complete the program by the end of that year .' the other hand, delays in the implementation of the additional components were related to belated MOE requests for including such components under the project, and, particularly for the 52 extensions, to the Gulf crisis and to the reluctance of contractors to bid for small projects. 33. Some project management difficulties developed late during implementation but were promptly resolved without seriously affecting the implementation process. MOE quarterly progress reports were regularly submitted, thorough and of good quality. The Special Account which was established in January 1986 was, after some initial difficulties, effectively used during implementation and helped to avoid delays in payments to contractors. 34. In general, covenants were duly complied with. All project sites were acquired on time and project accounts were audited regularly and audit reports submitted without delay. Regular progress reports were prepared and furnished to the Bank, and the MOE provided the Project Completion mission of February 1993 with all data needed. However, implementation of the technical assistance component was superseded by the changes described earlier (para. 11). However, the Technical assistance program was effectively completed in  -9 December 1992, through USAID-financed instructor training and institution- building fellowships, and pre-investment studies were carried out with Bank assistance. K. Proiect Relationshins 35. Project files show that supervision was regular throughout project implementation. The Bank, through its supervision missions, developed an excellent working relationship with the Government authorities involved in project implementation and was instrumental in reaching agreements to reinstate responsibility for school construction within the MON, and reassemble the Project Services Directorate. Also, the Bank worked out, in collaboration with MOE officials, a revised quarterly Progress Report which has since been adopted by the MON. Finally, the eagerness of MOE officials at all levels, including H.E. the Minister of Education, to collaborate closely with supervision missions contributed substantially to better understanding oa both sides of the difficulties and problems encountered and to the design and implementation of appropriate solutions. L. Consultinu Services 36. The appraisal proposal included a technical assistance package to be financed by the Bank at an estimated US$1.7 million. The package comprised: 183 p/m. (person/months) of fellowships for upgrading 49 instructors for technical schools and prevocational activities; 85 p/m of institution building fellowships for 24 MOB officials; 21 p/m. of specialist services for in-service teacher training and industrial electronics; and 48 p/mr of specialist services for pre-investment studies for subsequent projects, including a feasibility study for science equipment production. Implementation of fellowships was to start in June 1984 and to be completed in December 1986, and that of specialist services also to start in June 1984 but be completed .n June 1986. 37. The Government considered that grant funds should be sought for financing technical assistance. Accordingly, it started exploring possibilities for ensuring such assistance via grants from multilateral or bilateral agencies soon after loan effectiveness. In July 1984, the Government proposed, and the Bank accepted, that specialist services be provided by Jordanian universities, and that fellowships be financed through a grant by USAID, leaving unutilized the US$ 1.7 million included in the project for this purpose. Negotiations with USAID were lengthy and laborious, and it was only in April 1985 that USAID indicated clearly its intention to allocate US$ 0.6 million for this purpose. Processing of the agreement, which was signed later in 1985, was also lengthy; implementation started with the institution-building fellowships in April 1986, but the bulk of them were executed during 1989. Seven institution-building fellowships for a total of 27 months were finally cancelled for lack of funds. Instructor training started only in April 1992 and was completed by the end of the same year. With regard to specialist services, the universities provided some inputs, but  - 10 - pre-investment studies for future projects were mainly undertaken with direct Bank assistance. 38. In addition to procedural and processing difficulties, a major cause for the long delay in the implementation of technical assistance proved to be the problem of inadequate proficiency of fellowship candidates in the English language. Suitable candidates for the institution building component were eventually found, but it was decided that the instructor training program would be carried out in Tunisia, in Arabic, by the Tunisian Vocational Training and Employment Office (VTEO/OPPE1). To this effect, a contract was signed in December 1990, between the Government of Jordan, the USAID and the OPPE for the equivalent of some US$ 200,000. Execution of the program was suspended due to the Gulf crisis, when USAID decided to freeze the funds available for both the instructor training program and the remaining institution building fellowships. The funds were released again by February 1992 and implementation started in April and was completed in December 1992. M. Proiect Documentation and Data 39. Project records at Bank headquarters, including the working papers of the preparation missions, supervision reports, and project monitoring information were well documented and readily available for preparing the PCR. The SAR was well documented and provided a suitable source of information for monitoring the achievement of project objectives, and was an effective and useful tool for all officials in charge of project implementation in the field. Progress reports were well documented and timely, and facilitated the work of the supervision missions. The legal document was also concise and clear, and, together with the SAR assisted the implementing agency in the execution of project-related activities. N. Conclusions and Lessons Learned 40. The principal conclusions and lessons learned include the following: 41. Technical Assistance. In retrospect, the appraisal mission should have explored the possibility of proposing local specialist services rather than foreign consultants, as the Government requested this change, which was accepted by the Bank, soon after loan effectiveness. The Bank realizes that there is a Government principle to contract technical assistance only via grants, but the Government should be ready to make exceptions to this principle in cases in which delays could jeopardize the implementation of related substantive components of the project. 42. Apnraisal Estimates. Enrollments in compulsory schools for girls were overestimated at appraisal, while enrollments for boys were underestimated. Enrollments in compulsory schools for girls are at present only 66 percent of estimates, while those in schools for boys surpassed the 1/office de la Formation Professionnelle et 8mplois  - 12. - appraisal targets by 33 percent. In retrospect, it appears that allocating 79 percent of the total student places provided at this level (including the six additional schools) to female students was too optimistic in a system where female participation in compulsory education was already over 46 percent of the total and where the main reasons for lower attendance are cultural rather than the lack of school places. The rapid growth of the school-age population suggests that before long all schools will reach their full capacity. Finally, the internal efficiency of the education system was overestimated at appraisal in projecting the output of project schools. 43. School Construction. Delays in construction of the additional physical components were attributed mainly to administrative deficiencies (because of split responsibilities between MOB and MPWH) and, later, to structural and organizational inadequacies within the MOE. The former problem has been resolved, while the latter is being handled through the reorganization and restructuring of the MOE Engineering Affairs Directorate. Maintenance is among the most critical problems for the MOE. Budget allocations adequately cover emergency cases, but there is no overall systematic maintenance program. Establishment of a "maintenance system", delineation of responsibilities, and reorganization of the MOE School Building Services Directorate (which is responsible for maintenance), are among the measures being taken with Bank assistance in the Seventh Education Project. Recent Bank supervision missions proposed that a special "School Maintenance Fund" be established to help repair school buildings in bad condition so that only routine maintenance would be required thereafter. 44. Additional Components. Adding components, even when Government assurances are received that additional works would be completed in a timely fashion (as in the case of this project), should be very carefully scrutinized and should be subject to strict timetables if approved.  - 12 _ PART II PROJECT REVIEW pROM BORROWER'S PERSPECTIVE A. Adecuacg and Accuracy of Factual Information in Part III: Information, data and defining the project profile included in Part III were well prepared and discussed thoroughly both in field and on tables. They served as the basis for tables in Part III. B. Bank Performance: Bank successive missions personnel were generally recognized as professionals in all respects. The members in all missions were always highly qualified and experienced in their respective fields, but there were few occasions when supervision missions visited the kingdom, a specialist in accountancy of financial affairs was not among to discuss financial matters and procedures with our accountants, and to address some kinds of implementation financial problems occurring. All the missions' visits were on time of which we were informed in advance. C. Borrower's Performance: The performance of the participating institutions in overall was good, except for the implementation of the Technical Assistance Program, for the USAID, as a financing and implementing agency was not carrying out the program according to schedule. The money allocated as a budget by the USAID for this purpose had been used up completely long before covering all the fellowships in the schedule. So we were informed to cancel the remaining fellowships. Moreover there had been so many delays in the implementation. The implementation of procurement of equipment was satisfactory, except for that part concerning the Indian Suppliers. The quality of the Indian equipment was not up to specifications and, therefore, it was inadequate. This had negative effect on project implementation. The implementation of the civil works was quite good and there were no delays in their completion. D. Lessons Learned: It is very necessary to keep the overall communications between the Bank and the Borrower documented, especially those concerning the Accounts, and to keep mission members visiting the kingdom informed, not only of the information included in the Appraisal Report, but of the very up-to- date documents and amendments also. The supervision missions' visits were all scheduled beforehand, and so this enabled both the missions' members and the staff of the implementation unit to prepare information needed in advance to be discussed and followed up.  - 13 - PART IIt STATISTICAL INFORMATION Table 1: IBRD LOANS RELEVANT TO THE PROJECT Loan/Credit Year of Title Purpose. Approval Status Cr. 285-JO Improve quality of 1972 Completed Education I education; increase supply of skilled manpower. Cr. 534-JO Improve quality of 1975 Completed Education II education; increase supply of skilled manpower. Lu. 1781-JO Improve quality of 1979 Completed Education III education; increase supply of skilled manpower. Lu. 2068-JO Improve quality of 198. Completed Education IV education; increase supply of skilled manpower. Ln. 2246-JO Increase supply of 1983 Completed Education V skilled manpower; provide access to basic schooling for nomadic populations; strengthen Ministry of Education Ln. 2870-JO Improve quality 1987 Progress satisfactory Education VII and expand coverage of compulsory education. Lu. 3106-JO Support the govern- 1989 Progress satisfactory Human Resources ment's 10-year Educa- Development tion Reform Program. Sector Investment Loan  - 14 - MIS 2: PLANNED, RBVISED AND ACTUAL DATES OF PROJECT TIMETABLE Planned Revised Actual Initiating 4/16/82 Project Brief Identification S/20/82 6/15/82 Mission Preparation 10/10/82 10/10/82 Mission Appraisal Mission 3/22/83 3/22/83 Post-Appraisal 8/14/83 8/14/83 Mission Loan Negotiations 11/14/83 | 11/28/83 Board Approval 1/31/84 _ _ - _ 2/2/84 Loan Signature 3/8/84 3/8/84 Loan 7/9/84 10/9/84; 12/8/84 12/11/84 Effectiveness Loan Closing Date 12/31/89 12/31/90; 12/31/91; S/31/93 12/31/92; 05/31/93 =-omments: (a) The effectiveness date was first extended from July 9, 1984 to October 9, 1984 to allow time for completion of ratification of the legal documents by the Jordanian parliament and the preparation of the legal opinion. It was subsequently extended to December 8, 1984, to allow time for constitutional requirements, i.e. about six weeks since the start of .the session of the Jordanian Parliament which began on October 1, 1984. (b) The Loan closing date was extended four times to allow for the completion of components added during implementation and of the USAID-financed technical assistance. The components added during implementation included six additional compulsory schools, and laboratories, multi-purpose workshops, libraries and audio-visual rooms for 52 existing general schools.  Table 3s CU6ELATrVN ZSTITD ANID AC1TL D1S9USEM1STS (Us$$ Million) Bank Fiscal |84 8S 8f 87 g1 I9o 91 g2 93 Ye -- lpraisal 0.20 1.10 4. 80 17.20 29.60 38.00 40.00 Estimate --a ~ ~ -5 -. . - - -_ -, _- Actual 0.00 0.00 2.39 13.16 27.60 34.49 34.7? 3S.11 35.43 37.38 Actual as % 0.00 0.00 49.79 76.S2, 92.62 90.76 86.88 87.78 88.58 93.35 of Estimate Date of Fial Dishursment: J%me 30, 1993 Cumulative Planned and Actual Disbursements 40 35 30 *25 220- 10. 84 85 86 87 88 89 90 91 92 93 Bank Rscal Years 1 Appraisal Esdmate U Ao:al .  - 16 - Table 4: PROJECT IMPLEMENTATION: KEY PROJECT INDICATORS Indicators Targets Achievements Schools New Compulsory Schools 31 37 New General Secondary Schools 16 16 Extensions to Existing Schools 53 53 Specialized Pacilities 52 40 Technical Asgistance Fellowships (number/man-months) instructor Training 49/183 49/183 Institution Building 24/71 17/44 Ernerts {number/man-months) Dir. of in-service Teacher 1/12 n/a Training Dir. of Education l/9 n/a atudies (man-months) 48 n/a Comments: (a) The specialized facilities for 52 existing schools were added to the project in April 1992. (b) The technical assistance component which originally was to be fineanced by the Bank was eventually financed by USAID. (c) Furniture and equipment for all new schools and extensions has been acquired. (d) Studies included preinvestment studies for a possible follow-up project. These were not implemented as such, but the preinvestment studies were carried out with direct Bank assistance.  - 17 - =16 S., PROECT COSTS (US$ mi.1 lion) Estiated Costs Atual SQgt Category Local Foreign Total Local Foreign Total Costs Costs Costs Costs Costs Costs Civil Works 42.34 29.07 71.41 56.69 28.25 84.94 Furniture and 3.44 15.04 18.48 7.70 9.68 17.38 Equipment Technical 0.13 1.15 1.28 0.30 0.30 0.60 Assistance Czntingencies 14.85 lS.98 30.83 Total 60.76 61.24 122.00 64.69 38.23 102.92 Comments: In February 1988, construction, equipping and furnishing of six additional compulsory schools was added to the project. Laboratories, multi-purpose workshops, libraries and audiovisual rooms for 52 existing schools were added in December 1991. Table 6: PROJECT FINANCING (US$ Million) Source of Punds Planed Actua iBRD 40.00 37.40 Government 82.00 5S.22 Islamic Bank 9.70 USAID 0.60 Total 2122.00 102.92 USAID provided US$0.6 million for technical assistance; and tha Islamic Bank provided US$9.7 million for the financing of secondary school construction. Actual project costs were lower than estimated due to the devaluation of the Jordanian Dinar during implementation.  - 18 - T}g It AMOCATION OF LOAN PROCEEDS (US$ million) Orlalnal Allocation Actual pisbursements Civil Works 24.0 26.1 Consultants, Services 0.8 1.6 Equipment 10.0 9.7 Fellowships 0.8 0.0 Uhallocated 4.4 0.0 Conmmnts e Consultants' Services refers to professional services for civil works.  - 19 - Table 8: DIRECT BENEFITS OF PROJECT: ENROLLMENTS IN PROJECT INSTITUTIONS A. 31 ComDug_ov Schools Estimates Actual Total 28.670 22.5,21 Girls 22,200 13,664 Boys 6,4X0 8,757 B. Six Additional ComDulsorv Schools Total 6.000 5.185 Girls 5,280 4,423 Boys 720 765 C. 16 General Secondary Schools Total 15,860 14.204 Girls 6,450 5,830 Boys 9,410 8,374  - 20 - Table 9: COMPLIANCE WITH LOAN COVENANTS T ! I - Status of Compliance S 1 ! I------------------------------------I I i ! Source I Conditions ! Action ! Conditions ! I Description of Covenant i of I Not I Pending ! Met Discussion I !Covenant I Comlied I 1 ! iTECHNICAL ASSISTANCE iSection i i i X I USAf financed instructor i itot later than June 15. 1984 i3.03 (a) i ! ! ! training and institution I 'provide to the Bank for review ! ! ! I ! building fellowship programs i iand comments. a program for ! ! ! ! was completed in December 1992.! Icarrying out the activities i I i ! ! I iprovided under Part 8 (1) and I ! ! ! ! I !(2) and after reviewngr ! I ! Ithe Bank's comments thereon. ! ! ! * ! ! !lmplemrt such program in i ! ! ! I iaccordance with a time schedule! ! ! ! ! lsatisfactory to the Bank. i ! ! !Submit T.A. program for Bank ! I ! ! treviei by December 31. 1983 - ! ! I ! I ! land subsequently implement the ! ! ! ! I 1 !program. ! ! - ! ! I iCarry out the preinvesttent i3.03 (b) ! i i X I Some preinvestment studies were! istudles provided under Part B 1 I I ! carried out with Bank staff ? 1(3) and (1i) provide to the ! ! I ! ! assistance. The German govern- i !Bank for comuent a copy of such! ! ! ! I ment helped to reinforce dam- ! istudies promtly upon their ! ! ! I I estic manufacturing of science ! !conpletion. i i i i ! equipment but no formal prein- ! ! ! ! ! ! ! vestment study to this effect ! I I I I ! Iwes executed. !Furnish to the Bank at regular 13.04 (b) i I I ! lintervals all such Information ! ! ! i X I In compliance. Progress i las the Bank shall reasonably ! ! i I ! reports were sent to theBw ! rquest concerning the project.! i i ! J regularly. 1 tits cost and. where appropriate! ! ! ! fthe benefits to be derived from! ! ! ! ! I li1t the exwnditure of the pro-i I I i ! lceeds of the Loan and the goods! I ! ! ! I land services financed out of I ! ! ! ! I 'such proceeds. i i I 3 ; i ! ! ! ! ! iNot later than six months afteri3.05 (d) 1 ! i X MOE provided the Project Cam- . Ithe closing date or such later ! i- I ! pletion Mission of February I fdate as may beagreed for this I !I 11993 with all data needed. puirpose between tbe Borrower ! i ! i i land the Bank. the Borrower ! I ! ! ! Ishall prepare and furnish to ! I ! ! ! ! !the Bank a report on project ! ! i ! !execution and accomplshments. ! ! ! ! ! 1 i ! ! ! ! ! I iTake all such action as may be 13.06 ! i I X 1 In compliance. I !necessary to acquire not later ! i I ! ithan June 30. 1984 all such ! I I ! ! Iland and rights in respect of i ! I ! ! ! !land as shall be required for i i ! Icarrying out Part A of the !I i ! ! ! IProject. ! ! ! ! t I IAudit the project anmually and 14.02 1 I t X I Audit reports submitted I Ifurnish theBank with cop ! ! ! ! ! regularly. nearly two to three I lwithin 8 months of fiscal yearw! ! ! ! ! mnths after the end of the I lend. I ! ! ! !fiscal year.  - 21- Table 10: MISSION DATA BY STAGES OF PROM=cT Type of Date No of Specialization Staff Weeks Mission Persons Represented in Field Identification 02/82 3 ET,EG,E 6.5 Follow-up 07/82 1 ET 4.5 Preparation 10/82 1 Er 2.o Appraisal 04/83 3 BO,NC,A 12.0 Supervision 1 12/85 4 ZC,EP,EA.A 2.6 Supervision 2 03/86 1 BP 0.5 Supervision 3 11/86 1 EC 1.5 Supervision 4 09/87 4 EG,ET,OA, A 2.0 Supervision 5 06/88 1 ET 0.5 Supervision 6 02/89 1 A o.s Supervision 7 06/90 1 ET 0.7 Supervision 8 06/91 4 EP,ET.EG,A 2.5 Supervision 9 11/91 3 EP,A,OA 1.0 Supervision 10 06/92 2 EP,A 0.3 Supervision 11 01/93 2 EP,A 0.5 Note; A = Architect: ENG General Educator; ST - Technical Educator; NA * Agricultural Educator; NP - Educational Planner; EC = Economist OA - Operations Assistant. Table 11: STAFF INPUTS (Staff Weeks) Fiseal Year Peppraisal Apprisal Negotiation Supervision Other Total 1982 2.1 2.1 1983 12.4 24.0 2.2 386 1984 11.3 5.1 1.5 5.6 23.5 1985 4.6 4.6 1986 126 .5 13.1 1987 3.0 3.0 988 63 6.3 1989 2.6 2.6 1990 3.7 3.7 1991 3.9 3.9 1992 9.7 9.7 1993 9.7 9.7 1994 .8 .8 Totals 14.6 35.3 5.1 5&2 83 121A  - 22- ParticiDants in CQmnletion Mission World Bank Mr. Stavros Syrimis, Consultant Mr. Jim Antoniou, Architect Consultant Ministry of Plannina Mr. Safwan Touqan, Secretary General Mr. Zeidoun Rashdan, Director, Social Sectors Ministrv of Education Mr. Abdul Razzaq Al-Ma'ani, Director General, Projects and School Buildings Mr. Mohammad Attiyeh, Director, Project Services Ms. Su'ad Farkouh, Director, Educational Technology Ms. Bahjah Bitar, Director, Testing and Evaluation Mr. Yahya Kisbi, Director, Engineering and Planning ! Mr. Nawash Harp, Director, School Buildings Services Mr. Mohammad Hiyari, Chief Accountant, World Bank Projects Mr. Jamil Hiwjawi, Procurement officer, World Bank Projects  -~~~~~~~~~~~~~~~~~~:C ii