Morocco - Third Education Project

Report No. 1 059-MOR l Appraisal of a Third Education Project in the Kingdom of Morocco February 25, 1976 Education and Manpower Development Division Europe, Middle East and North Africa Region FOR OFFICIAL USE ONLY International Bank for Reconstruction aid Development International Development Association This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  Currency Equivalents US$1.00 = Moroccan Dirham (Dh) 4.00 Dh 1.00 = US$0.25 Measures 1 m2 = 10.764 sq. ft. 1 km2= 0.38 sq. mile 1 hectare = 2.47 acres Fiscal Year January 1 - December 31  FOR OMCAL USE ONLY KINGDOM OF MOROCCO APPRAISAL OF A THIRD EDUCATION PROJECT TABLE OF CONTENTS Page No. GLOSSARY BASIC DATA SUMMARY AND CONCLUSIONS ...... .................... i - ii I. INTRODUCTION .................................... 1 II. COUNTRY BACKGROUND ............................... 2 Physical Environment and Population ............... 2 Economic Development .................... 2 Socio-economic Development Strategy .............. 3 Employment Opportunities and Manpover Requirements ........ ........................... 4 III. EDUCATION AND MANPOWER DEVELOPMENT .... ........... 5 The Present System .................. 5 Educational Issues ................... . 6 Educational Development Strategy ............... 7 Education and Rural Development .............. 8 Education Finance ........ ......................... 9 IV. THE PROJECT .............. 10 Objectives ........................................ 10 Primary Schools .............................. 11 Secondary Schools ............ .. .............. 12 Teacher Training College ................... .. 13 Computerized Data Processing Unit ............ 14 Hotel Training School .......... .. ............ 14 Hotel Training Centers .......... .. ........... 15 Rural Development and Extension Training Center ..................................... 15 College of Public Health ..................... 16 Medical Technicians Training Unit ............ 17 Health Staff Training Centers ............... . 17 Engineering Designs .......................... .... 17 Wechnical Assistance ............... ............... 18 Cost of the Project ................ ............... 19 Financial Plan ............ 21 Implementation ............................... 21 Procurement .. ................................ 23 Disbursements ................................ 23 This document has a rstncted distibution and nmy be used by recipsets only in the performance of their official duties. Its contents may not otherwise be ditched witbout World Bank a.ntmizon.  TABLE OF CONTENTS (Continued) V. RISKS AND BENEFITS ................. .............. 23 VI. AGREEMENTS REACHED AND RECOMMENDATIONS . ... 25 ANNEXES 1. Comparative Education Indicators 2. The Education and Training System Chart 1 - Organization of Ministries of Education Chart 2 - System of Public Education Chart 3 - Education Pyramid 1973-1974 3. Implementation Problems in the First and Second Moroccan Education Projects 4. Overall Projection of Manpower Requirements 1973-1985 5. Enrollment Growth in Formal Education 1970-75 6. Public Expenditures, Education and Training 1970-75 7. Capital Budgetary Allocations to Training 1973-75, Government Ministries other than Ministries of Education 8. Actual and Projected Enrollments 1974-1985, Ministries of Education 9. Projection of Public Expenditures on Education, Ministries of Education, 1975-1985 10. Estimated Recurrent Expenditures for Formal Schooling, 1985 11. Enrollments, Outputs, Pupil/Teacher Ratios and Use Factors in Project Institutions 12. Schedule of Technical Assistance 13. Project Costs by Type of Expenditure 14. Unit Capital Costs and Area per Student 15. Contingency Allowances 16. Implementation Schedule 17. Estimated Schedule of Disbursements MAP  GLDSSARY Adjoint technique - agricultural extension agent Agent technique - assistant agricultural extension agent Baccalaureat - secondary learning certificate Cadristes (Ministry of Health) - higher level health staff including medical technicians, health educators, health inspectors Carte scolaire - school mapping Centre Pedagogique Regional (CPR) - Secondary Teacher Training College Cercle - small local government administrative unit between a "commune" (village) and a province in size CRAFA (Centre Regional d'Animation et de Formation Agricole) - Young Farmers Regional Training Center Ecole Regionale d'Instituteurs (ERI) - Primary Teacher Training College Enseignement originel - traditional education (Islamic) Infirmier d'etat - state registered nurse Ingenieur d'Application - applied engineer Ingenieur d'Etat de Conception - design engineer Multi-grade teaching - more than 1 grade of teaching being conducted simultaneously in 1 classroom Promotion Nationale - Public Works Program Secteur scolaire - primary school catchment area served by a central "mother" center and scattered "satellite" classes Shift system (classes de roulement) - a system in which pupils in a primary school are divided into 2 groups and taught at different times of the day   KINGDOM OF MOROCCO Basic Data (1974)1/ Total Population 15.8 million (1972) Current Rate of Population Growth 2.9% p.a. Per capita GNP (1972) about US$270 Literacy Rate about 26% Primary School Enrollment as a 2/ Percentage of Age Group 7-11 547%- Lower Secondary School Enrollment 2/ as a Percentage of Age Group 12-15 177/o- Upper Secondary School Enrollment as a 2/ Percentage of Age Group 16-18 8%- Higher Education Enrollment as a 2/ Percentage of Age Group 19-22 2%- Central Government Expenditures on Education as a Percentage of Total Government Expenditures 16.5% Central Government Expenditures on Education as a Percentage of GDP (1973) 6.2% 1/ See Annexes 1 and 2 for comparative educational data and a detailed description of the present education and training system. 2/ Including overaged students.   SUNbMARY AND CONCLUSIONS i. At Independence in 1956, the new Moroccan government inherited a francophone-type school system and a national structure of govermlient ser- vices which were ill suited for the modernizing tasks ahead. Since then, the main thrusts in education and training have been to expand quantita- tively and to Moroccanize the school system, to build up local staffing capacities to sustain essential government administration, and to assist in training personnel for the private commercial and industrial sectors. ii. These tasks, in spite of considerable progress, still remain formid- able. About half of all primary-aged children are completely unschooled-- mainly those in rural areas and girls in particular--and the program is ill- adapted to their rural needs. At secondary level, only about 13% of the relevant age-group is catered for and the prevalent emphasis on literary sub- jects, notwithstanding efforts to redress the imbalance, continues to exacer- bate the mismatch with labor market requirements and employment opportunities. The government is now urgently addressing problems rooted in rapidly growing urban-rural income and educational disequalities which until the present had been overshadowed by overwhelming preoccupation with economic growth. Its efforts to create and implement rural development programs have exposed serious quantitative and qualitative bottlenecks in the supply of the re- quired field staff. iii. The first and second government education projects, supported by IDA credits (79-NOR approved in 1965 and 266-MOR approved in 1971), focus on help- ing to meet the priority need for more and better secondary education as a basis for producing urgently required skilled manpower (particularly in science and technology) to service the expansion of the economy. This still remains urgent and the proposed third project includes schools and training institu- tions to continue widening and deepening on-going secondary expansionary and reform programs, as well as skill training for priority economic sectors (comnmerce, industry, agriculture, tourism). iv. In addition, as an important new dimension to the Bank's education lending program to Morocco, the proposed project would assist the government to implement its socio-economic policy to alleviate rural poverty through: support to rural-oriented education and training programs which include ex- perimental primary schools in the most deprived rural areas, the lessons to be used as a basis for a major reorientation of primary schooling; and as- sistance to institutions aimed at developing methodologies and trained field staff for agricultural extension and farmer training, and for improving health programs. v. The proposed project therefore is concerned with (i) meeting man- power needs (training for industry, agricultural development, health and tourism), and (ii) institution building and curriculum reform (general educa- tion, agriculture and health) which correspond to priorities established in the national development plan 1973-77. It would include:  - ii - (a) construction, furnishing and equipping of: - 47 experimental primary schools; - 5 secondary schools in rural areas; - 1 secondary teacher training college; - 1 Hotel Training School; - 4 Hotel Training Centers; - 1 National Rural Development and Extension Training Cepter; - 1 College of Public Health; - 1 Medical Technicians' Training Unit; - 3 Health Training Centers (including 1 extension); - computerization of administrative and educational data for Ministries of Education (equipment only); (b) engineering design for: - 5 technical colleges; - 1 technical teacher training college; -1 Applied Engineering Training Institute; (c) related technical assistance. vi. The technical services of the relevant Ministries, other than the Ministry of Education, would be directly responsible for the implementation of their respeccive components. The Project Implementation Unit, established under the second project, and further reinforced would be responsible for im- plementing the project items of the Ministry of Education and for backstopping the other Ministries. Project coordination and liaison with the Bank would be provided by the Office of the Secretary of State for Economic Affairs in the Prime Minister's Office. viA. Civil works contracts would be awarded on the basis of international competitive bidding in accordance with Bank guidelines. Detailed lists of furniture and equipment would be presented for the Bank's review and approval prior to procurement. These lists would identify all items or categories of items costing more than US$10,000, the residual items being included in one miscellaneous category not exceeding US$100,000 for each institution. Items in the miscellaneous category would be procured under normal government pro- cedures which are satisfactory to the Bank and would include price quotations from at least 3 suppliers. All other items of furniture and equipment would be procured under ICB which would provide local manufacturers of furniture and equipment with a margin of preference equal to the existing rate of customs duty applicable to competing imports or 15% of C.I.F. price, whichever is lower. viii. "he total project cost is estimated at US$59.5 million for which a Bank loaiA of US$25.0 million is proposed to the Kingdom of Mlorocco.  I. INTRODUCTION 1.01 In October 1965, IDA extended its first credit for an education project in Morocco (Credit 79-MO)R) to help expand general and specialized secondary schooling; the credit (US$11 million) assisted the financing of 18 secondary schools. Poor project management, due to a lack of qualified full- time staff and cumbersome contracting procedures during the early years, caused the project to be nearly 5 years behind the original implementation schedule (Annex 3). These difficulties have now been overcome and the proj- ect was completed in June 1975. 1/ 1.02 The second IDA education credit (Credit 266-MDR) was extended in November 1971. The credit (US$8.5 million) is assisting financing extensions and science equipment in 6 secondary schools; extensions to a middle-level forestry school; equipment for 10 industrial and 13 commercial schools; and construction and equipment for a Higher Teacher Training College, a National Education Research Institute and 6 Regional Teacher Training Colleges. The second project was affected by the same delays as the first and is nearly 2 years behind the original implementation schedule. It has, however, been progressing well for the past two years and is expected to be completed in 1976. 1.03 The proposed third project is designed to assist the government in (i) meeting urgent manpower needs, and (ii) institution building and curricu- lum reform. It therefore would help to train manpower for servicing the grow- ing needs of industry and tourism in the private sector, to build up urgently required government staff training capacity in agriculture for new rural im- provement programs, to improve the effectiveness of public health staff train- ing, to expand and redirect the formal school system and to widen and deepen the impact of the first two IDA education projects. 1.04 The project was identified by a Unesco mission to Morocco in September 1973, and a Bank reconnaissance mission discussed findings with the government and agreed to a tentative project composition in September 1974. In January 1975, a Bank/Unesco mission discussed the inclusion of additional items suggested by the government, and following the government's final re- quest a Unesco preparation mission assisted in preparing a project for Bank appraisal during February/March 1975. A Bank appraisal mission visited the country during March/April 1975. It consisted of A. de Capitani (economist, mission leader), R. C. Prosser (general educator, deputy mission leader), A. Andonyadis (architect), R. Savas (agricultural educator), H. Cassirer (mass media specialist, consultant), J. C. Jones (technical educator, consultant), G. W. Lattin (tourist training specialist, consultant), and F. Rosa (health training specialist, consultant). The proposed computerization of education data was reviewed in Washington by Mr. W. Rayfield (Deputy Director, Computing Activities Department). 1.05 The proposed project was slightly modified during appraisal in agree- ment with the government. The number of primary schools was reduced from 320 to 47 which would offer a complete primary cycle with experimental curricula; 1/ Disbursements on contracts signed prior to June 30,1975 were permitted to continue to September 30, 1975.  - 2 - 5 upper-cycle secondary schools were deleted; two teacher training colleges, originally one each for arts and science, were combined into one; the tech- nical assistance program was considerably reinforced; and suggestions were discussed with the government to improve curricula and to increase educational efficiency. 1.06 On return from the field, it was decided to provide assistance for engineering design only for 5 technical colleges, the technical teacher training college, and the Applied Engineering Institute as a basis for a possible follow-up project in order to shorten the implementation period of this project and to make it more manageable. In addition, it was decided to include technical assistance to assist with a study on vocational educa- tion and training. At the goverament's request, the proposed engineering design for the National School of Horticulture was deleted from the project. II. COUNTRY BACKGROUND Physical Environment and Population 2.01 The Kingdom of Morocco borders the Atlantic Ocean and Mediterranean Sea, Algeria and Spanish Sahara. It has a land area of about 506 thousand sq. kms., is the most north-westerly country of Africa and forms the Arab world's western flank. The Atlas mountains, running diagonally across the country, are a natural dividing line between the more prosperous northwest and the poorer southeast. The former benefits from a geographical position favor- able to international trade and an annual rainfall of more than 16 inches as a basis for both rain-fed and irrigated farming while the southeast is handi- capped by a lower annual rainfall which decreases to less than 4 inches toward the Sahara. 2.02 Population totals about 15.8 million (1972) and is growing at a high 2.9% annually with about 55% below 20 years of age. Two-thirds of the popu- lation are rural, and marked features are high rural-urban migration and migration from the southeast to the northwest. Three-quarters of the population are illiterate. Economic Development 2.03 The Moroccan economy continues to be built on private initiative. Agriculture is the single most important economic activity accounting in 1974 for about 22% of GDP, 70% of employment and 22% of total export value. Major limitations to expanding agricultural output include the lack of water, a shortage of credit to farmers, inadequate farmer technological know-how and weak training and extension services. 2.04 The economy is on an expansionary path but important issues to be resolved include a growing income gap between town and countryside and in the latter between modern and traditional farmers, especially in low-yielding, rain-fed lands; a continuing high level of unemployment, between 12 and 16% in large urban centers; and a chronic shortage of middle-level skilled man- power and managerial know-how.  - 3- Socio-economic Development Strategy 2.05 The 1973-77 Five Year Plan reflects a fresh government emphasis on social and income distribution policies as well as providing for export-led growth to achieve a 7.5% GDP annual growth target. Measures to effect a more equitable distribution of wealth include increased land distribution to poor farmers covering some 400,000 hectares; a more progressive tax system; staple food price and wage regulation; special programs for rural poor in the most deprived areas; and, increased public spending on social services with expenditures in the current plan period to more than double those of the pre- vious period. 2.06 Main priorities to achieve growth include the development of (i) manufacturing, industry and mining with emphasis on exports; (ii) agriculture, with a shift in emphasis from dam construction and irrigated farming to rain- fed agriculture, animal husbandry, on-farm works, farmer training and exten- sion services; and (iii) tourism, with hotel expansion to more than triple new capacity achieved in the previous plan period. Among social services, education remains a high priority and public health programs have enhanced importance. The current plan budget for health triples that of the previous and stress is placed on training paramedical staff to man increased numbers of health centers and dispensaries, especially in rural areas, and to establish a corps of itinerant rural health workers.  - 4 - Employment Opportunities and Manpower Requirements (Annex 4) 2.07 Projections of manpower requirements and training needs are diffi- cult due to lack of data and the very uneven quality of available information. Those included here are only to indicate broad orders of magnitude and should be interpreted with caution. Projected annual manpower demand prepared by the mission is reproduced in Annex 4. The table below summarizes key sector manpower needs to 1985 together with the system's estimated present output: ProJocted 1974 Aninual Estimated Cutout for Estinated Estirated Possible Annual Projected Average Output 1st & 2nd Arnnual Output Output from Proposed Annual Demand from Education from Proposed Project Institutions, 1975-85 Systes Projects Education Project Engireering Design Only A. Industr-,. Mining and 58.ooo Construction Wi) Degree Engineers 580 16 0 0 0 (ii) Diplc3 Zrng_r'eers 1,71L) 0 0 0 90 (i'i) Yiddle-level technicians 5,800 650 500 0 900 (iv) Sc:'lled and Semi-skilled L9,880 2,700 2,500 0 0 B. Agriculture 1.230 Ci) Degree Engineer 75 36 0 0 10 (Ir,-nieurs d'Etat) (ii) Diploma Engineers 125 50 0 0 45 (Ing6nicurs d'Application) 1 1 (iii) Middl-e-level technicians 380 320 0 O/ 701 (Adjoints Te chniques) (iv) Semi-skilled 650 223 0 02/ 100- (Agents Techniques) C. Hotel and Tourist Industry 2,05