Somalia - Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 1789 PROJECT PERFORMANCE AUDIT REPORT SOMALIA: FIRST EDUCATION PROJECT (CREDIT 247-SO) November 7, 1977 Operations Evaluation Department 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.  FOR OFFICIAL USE ONLY PROJECT PERFORMANCE AUDIT REPORT SOMALIA FIRST EDUCATION PROJECT (CREDIT 247-SO) Table of Contents Page No. PREFACE PROJECT PERFORMANCE AUDIT BASIC DATA SHEET HIGHLIGHTS PROJECT PERFORMANCE AUDIT MEMORANDUM I. Project Background and Summary ......e................ 1 II. Main Implementation Issues: ............... ........... 4 1. Project Design ..........0 0..*.. ............... 4 (a) Project Management Arrangements ........ 4 (b) Implementation Problems Related to Project Composition 6..................... 6 2. Physical Implementation - ...... 7 (a) Buildings ......................... 7 (b) Equipment and Furniture for Project Schools . 8 (c) Costs ............... .......... ....... .................. 9 (d) Enrollments ................................. 9 (e) Maintenance oe es.........e. ....... 10 3. Supervision ....... o eo oo oo o* o....ooo e 10 III. Educational Impact .......oosooo.........oooo* 12 IV. Conclusions o...........,.............. ..........eoo 14 ATTACHMENT: PROJECT COMPLETION REPORT ..................... A.1 I. PROJECT ORGANIZATION AND MANAGEMENT -... ....... ..A.1 II. PHYSICAL EXECUTION - ... o ... .o....... o............... A.2 III. PROJECT COSTS ... ..... ... ................. . . . A.7 IV. OPERATIONAL RESULTS AND BENEFITS .............. A.10 A. Manpower ......................................... A.10 B. Provision, Implementation and Evaluation of Curricula oo......... o .................o A-18 C. Implementation of Trade Standards, Trade Tests, Technical and Vocational Education Council, and Tracer System ......999. ............... A-31 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. LIST OF ANNEXES Annex I-1 Project Changes in the Early Stage of the Project Cycle Annex 1-2 Comparison: I Planned Capacity; II Actual Capacity and III Actual Enrollment - All Project Institutions Annex II-1 Comparison: (I) Originally Estimated and (II) Actual Implementation Progress Annex 11-2 Summary Comparison of Total Teaching Premises (I) Originally Required and (II) Actually Provided - At All Eleven Secondary Schools Annex 11-3 Comparison: Areas of New Construction Work (1) Estimated in Original and Revised Worksheets and (II) Actually Provided/Built Annex III-1 Comparison: (I) Originally Estimated and (II) Actual Costs of All Project Items Annex 111-2 Comparison: (I) Original (appraisal) Estimates, (II) Revised Forecasts of Disbursement and (III) Actual Disbursements by Year and Semester Annex IV-1 General Secondary School Enrollment Annex IV-2 Secondary School Teacher Requirement and Supply Annex IV-3 Primary School Teacher Requirement and Supply Annex IV-4 Enrollment in Mogadiscio Technical Institute, Hargeisa Technical Institute, and the Primary Teacher Training at the Lafole College of Education Annex IV-5 Practical Facilities and the Presence of Practical Teachers in Project Schools Annex IV-6 Curricula Changes at the Primary and Secondary Levels Annex IV-7 Subjects for Four-Year Course in Technical Education Annex IV-8 Curriculum Time Allocations for Secondary Schools Annex IV-9 Comparison of Project and Non-Project Secondary Schools Annex IV-10 Training Activities for Technical Teachers and Skilled Workers Annex IV-11 Occupations for Which National Skill Standards Have Been Developed Chart 1 Process of Reducing the Primary Cycle from 8 to 6 Years Through the Literacy Campaign and the Introduction of New Curriculum PROJECT PERFORMANCE AUDIT REPORT SOMALIA FIRST EDUCATION PROJECT (CREDIT 247-SO) PREFACE This is a performance audit of the First Education Project in Somalia for which an IDA credit of US$3.3 million was approved in May 1971. The total amount of the credit was disbursed by November 29, 1976. The audit is based on a review of the reports of the Unesco project identification mission dated October 1969 and the Bank/Unesco reconnaissance mission dated March 1970, the official credit application dated April 1970, the credit agreement, appraisal reports No. PE 23-a dated May 7, 1971 for the First Education Project and No. 438a-SO dated July 22, 1974 for the Second Education Project, the Project Completion Report (dated October 29, 1976) prepared by the Eastern Africa Regional Office, and the materials available in Bank files relating to this project. Discussions have been held with Bank staff associated with the project. This audit supplements the completion report by throwing some additional light on problems relating to project objectives, design and super- vision and by showing, where relevant, the measures taken in connection with the Second Education Project which indicate that the lessons of the First Education Project have been learnt. In general the audit accepts the con- clusions of the completion report but advises caution in the use and inter- pretation of information gathered by the completion mission in a preliminary survey of students in secondary schools and technical institutes. 1/ I/ The regional education division states that the members of the completion mission do not agree with the audit memorandum on this point of caution.  PROJECT PERFORMANCE AUDIT BASIC DATA SHEET SOMALIA FIRST EDUCATION PROJECT (CREDIT 247-SO) KEY PROJECT DATA Appraisal Actual or Item Expectation Current Estimate Total Project Cost (US$ million) 3.67 4.52 Overrun (%) 23 Credit Amount (US$ million) 3.3 Disbursed ) 11/29/76 3.3 3.3 Cancelled ) - - - Repaid to ) - - - Outstanding) 06/30/77 3.3 3.3 Date Physical Components Completed May 1974 July 1976 Proportion Completed by above Date (%) 25 96 Proportion of Time Overrun (%) 72 Economic Rate of Return n.a. n.a. Financial Performance n.a. n.a. Institutional Performance Satisfactory Satisfactory OTHER PROJECT DATA Original Actual or Item Plan Revisions Estimated Actual First Mention in Files or Timetable - - June 1965 Government's Application - - May 1970 Negotiations - - March 1971 Board Approval - - May 20, 1971 Loan Agreement Date - - June 3, 1971 Effectiveness Date Sept. 1971 - November 18, 1971 Closing Date Dec. 1975 Sept. 1976 November 1976 Borrower Government of Somalia Executing Agency Ministry of Education Fiscal Year of Borrower Calendar Year Follow-on Project Name Second Education Project Credit Number 511-SO Amount (US$ million) 8.0 Credit Agreement Date September 19, 1974  PROJECT PERFORMANCE AUDIT BASIC DATA SHEET (Cont'd) MISSION DATA Month, No. of No. of No. of Date of Item Sent by Year Weeks Persons Man-weeks Report Identification Unesco May/June '69 3 4 12 Oct. '69 Reconnaissance Bank Group/ Jan. '70 1 3 3 Mar. '70 Unesco Preparation Unesco Mar./Apr. '70 4 4 16 May '70 Appraisal Bank Group Aug./Sep. '70 4 5 17 May '71 Total 48 Supervision 1 IDA Oct. '71 1 1 1 Oct. 29 '71 2 IDA Jan. '72 1 1 1 Feb. 28 (72 3 IDA July '72 1 1 1 Aug. 29 '72 4 IDA Oct. '72 1 1 1 Nov. 14 '72 5 IDA Dec. '72 1.5 1 1.5 Jan. 4 '73 6 IDA Apr. '73 2 2 4 June 13 '73 7 IDA Sept. '73 1/ 2.5 3 7.5 Oct. 30 '73 8 IDA Apr./May '74 2/ 2 2 4 May 13 '74 9 IDA May '74 1 1 1 June 19 '74 10 IDA Dec. '74 0.5 1 0.5 Dec. 24 '74 11 IDA Apr. '75 0.5 1 0.5 June 6 '75 12 IDA Nov. '75 0.25 4 1 Dec. 11 '75 Supervision/ Completion 13 IDA Mar./Apr. '76 3 3 9 Oct. 29 '76 14 IDA June '76 1 2 1 June 26 '76 15 IDA Aug. '76 1 1 1 Aug. 12 '76 Total 35 ALLOCATION OF CREDIT PROCEEDS (US$) Allocations Provided Actual Allocations for in Credit Agreement as at Closing Date I. Civil Works 1,300,000.00 1,842,649.93 II. Imported Furniture and Equipment 1,060,000.00 1,249,113.43 III. Technical Assistance and Project Administration 590,000.00 208,236.64 IV. Unallocated 350,000.00 - Total 3,300,000.00 3,300,000.00 1/ This mission was also concerned with reconnaissance for the Second Education Project. 2/ This mission was also involved in post-appraisal discussions on the Second Education Project.  PROJECT PERFORMANCE AUDIT BASIC DATA SHEET (Cont'd) CURRENCY EXCHANGE RATES Name of Currency (Abbreviation) Somalia Shillings (So.Sh.) Appraisal Report Year Average: Exchange Rate: US$1 = 7.00 So.Sh. Completion Year Average: US$1 = 6.23 So.Sh.  PROJECT PERFORMANCE AUDIT REPORT SOMALIA FIRST EDUCATION PROJECT (CREDIT 247-SO) Highlights The First Education Project in Somalia (Credit 247-SO) provided a credit of US$3.3 million to strengthen and expand primary teacher training, broaden the program of, and expand, secondary schools and technical insti- tutes, expand non-formal education in rural areas by using mobile training units and strengthen project management. By November 1976 the credit pro- ceeds were fully disbursed. On the whole, the implementation of this project was successful. Some major education sector policy changes by the borrower have temporarily delayed the achievement of enrollment targets; shortcomings in physical implementation included a lower than expected standard of finish of build- ings and delays in procurement of instructional equipment, and the expected council for vocational and technical education has not been established. A full assessment of operating outcomes would be needed after the schools have been in full operation for a few years. Experience with this project has influenced the design of the Second Education Project (Credit 511-SO). The following points may be of special interest: (a) project management arrangements (paras. 6, 11, 43) (b) the relatively unprepared state of the project at credit signing (paras. 12-15) (c) problems of international competitive bidding for small rural schools and instructional equipment (paras. 16-22, PCR paras. 2.08, 2.13-2.15) (d) sector policy changes by the Borrower (paras. 24-28 PCR paras. 4.03-4.05, 4.09-4.13, 4.21-4.32, 4.63-4.64) (e) non-establishment of a proposed vocational and tech- nical education council and of a tracer system to follow up graduates of training programs (para. 39, PCR paras. 4.69-4.71) (f) site supervision (paras. 18, 32(b), PCR paras. 2.10- 2.11) (g) project supervision (paras. 30-32, PCR para. 1.06) (h) the need for further work on evaluating operating outcomes of the project (paras. 35-38, PCR paras. 4.38-4.61).  PROJECT PERFORMANCE AUDIT MEMORANDUM SOMALIA FIRST EDUCATION PROJECT (CREDIT 247-SO) I. Project Background and Summary 1. On June 3, 1965, the Somalia Minister of Education met with offi- cials of the Bank Group to explore possibilities and procedures concerning educational borrowing. He was advised that a project could be considered in a year or two in the sub-sectors secondary and technical education and vocational training but not in university education. In September 1967, the Minister again raised the matter and was informed that IDA funds were fully committed for the next three to four years. In October 1968, at the Bank Group Annual Meeting of Governors and at the Unesco General Conference, the two respective Somalia delegations enquired again of the Bank Group and Unesco. This led to a Unesco project identification mission in May 1969, a Bank-Unesco reconnaissance mission in January 1970 and a Unesco preparation mission in March/April 1970. The government's credit application was pre- sented to the Bank Group in May and appraised in August/September 1970. The credit was negotiated in March 1971, approved in May, signed in June and declared effective on November 18, 1971. This processing period of 25 months from project identification to credit signature was unusually expeditious for a first education project but valuable opportunities for sector work had been neglected by the Bank Group over the period 1965-68. 2. Although the project content and cost estimates did undergo some modification at each stage of processing - identification, reconnaissance, preparation, appraisal - the general objectives and scope of the project remained approximately the same. 1/ The significant points at the various stages were that: (a) the identification mission excluded secondary schools, although it recognized that this was the government's first priority; (b) the approach to rural adult education wavered somewhat - the identification mission proposed rural training cen- ters with a film production center and a rural training institute, the reconnaissance mission preferred only a feasibility study, the credit application made no men- tion of it and the appraisal mission proposed mobile units; (c) the appraisal mission, concerned to keep project costs at a minimum, eliminated four proposed items - (i) an 1/ The Project Completion Report (PCR) sets out this evolution of the project in Annex I-1. - 2 - elementary teacher training college, (ii) a vocational training center, (iii) a publications unit and (iv) an academy for the Somali language. The mission proposed to expand the National Teacher Education Center (the secondary teacher training college) to train elementary teachers, to use the up-graded facilities of the tech- nical institutes for vocational training on a part-time basis and to substitute a small audio-visual aids work- shop for the printing press. The importance of the Somali language to the development of a national system of education was not fully recognized by the Bank Group at the time. 1/ 3. The appraisal mission also proposed to include multipurpose labora- tories and workshops (since the secondary schools were generally too small to justify specialized laboratories and workshops) and eliminated commercial subjects and industrial arts for some remote rural secondary schools (where economic activity in the particular locality seemed too unrelated to these subjects). 4. At negotiations the Somalia delegation put forward several pro- posals. Some of them were not accepted: for example, the proposal to construct a new secondary school at Hodan and convert the existing school into a primary/intermediate school instead of extending and improving the existing buildings, which the Association thought extravagant; a proposal to include the Bosaso secondary school in the project (for which IDA felt that there had been insufficient planning) and a more extensive program for boarding and staff housing at the National Teacher Education Center. On the other hand, the delegation won agreement on (a) some secondary school modifications (para. 13), (b) including additional equipment for extending the courses in the commercial section of the Hargeisa technical school from two to four years, and (c) deleting the proposed technical assistance for the mobile rural training units on the grounds that the country had adequate manpower to operate the units. 5. The project, for which the Credit Agreement was signed in June 1971, included: (1) Construction, furnishing and equipping of: (a) an extension to the National Teacher Education Center at Afgoi - to provide for 400 additional students (in- cluding 260 boarders) raising the total enrollment to 700 (including 560 boarders) and for 5 staff houses; 1/ On publications and national languages, the Bank Group Sector Policy has developed. The Education Sector Working Paper of 1974 recognizes the importance of a positive Bank Group role in textbook and language development financing whereas the 1971 version was silent on the matter of developing local languages and extremely cautious on textbook development. - 3 - (b) one new secondary school (Moalim Jama) and extensions to 10 secondary schools (to provide 1,180 additional places raising their total enrollment to 4,430); (c) extensions to (i) a technical school in Mogadishu to provide 110 additional places and strengthen the courses in mechanical, electrical, automotive and telecommunications fields and (ii) a technical/ commercial school in Hargeisa to strengthen commer- cial subjects and building and civil engineering courses. (2) Provision and equipping of eight mobile training units for agricultural education in rural areas. (3) Operational expenses for the project unit to be established in the Ministry of Education and the school design unit in the Ministry of Works. (4) Technical assistance consisting of (a) Ten man-years for experts in educational administra- tion, architecture and quantity surveying to advise on project management and school design; (b) a minimal program of seven man-years for experts in education to assist the National Teacher Education Center in educational development and teacher train- ing should the expected UNDP technical assistance program not materialize. The project was expected to receive UNDP support through two technical assist- ance programs - one for education and the other for technical education/ vocational training. 6. The agreement required (a) that the Borrower prepare and transmit to IDA (i) within one year of the agreement, new curricula for secondary, technical and teacher training institutions and a program for training teachers of practical subjects, (ii) within one year of the date of effective- ness, the plan for providing and operating the mobile units, (iii) within two years of the date of agreement, a detailed plan for training skilled workers and for establishing a Technical and Vocational Training Council and develop- ment of training standards, trade tests and a "tracer" system, and (iv) a de- tailed implementation chart and timetable; (b) the establishment of a project unit in the Ministry of Education (staffed by a director, a deputy director, procurement officer, accountant and architect) and a school design unit in the Ministry of Public Works (staffed by a project architect responsible to the director in regard to the project and a part-time engineer) - both units to be supported with qualified experts; and (c) the employment of experts for the National Teacher Education Center. A supplementary letter on educational -4- objectives confirmed the Borrower's intention to modernize curricula, teach- ing/learning methods and evaluation procedures of secondary and technical schools and of the National Teacher Education center. 7. A credit of US$3.3 million, or 90% of the estimated project cost of US$3.67 million, was provided and a closing date of December 31, 1975 was set. The general objectives of the project were to assist in improving the quality of education (through increasing the supply of trained teachers and satisfac- tory buildings and equipment, especially for practical work), consolidating the system and relating it better to manpower needs and strengthening project management. A more equitable geographical distribution of good educational opportunities for secondary school-age children and the rural farmers was to be achieved,-reducing the need for boarding, in the case of secondary schools, from 25% in 1969 to 16% in 1975. 8. The project was implemented successfully, on the whole, and by November 1976, 11 months after the originally fixed closing date, the credit proceeds were fully disbursed. The project had, however, undergone a few minor changes: (a) a new Hodan secondary school and new girls' Hargeisa secondary school had been constructed (instead of improving existing buildings); (b) miscellaneous agreed modifications in the schedules of accom- modation of the secondary schools had been implemented; (c) the National Teacher Education Center had been expanded beyond the originally agreed size; (d) the terms of service of technical assistance experts in project management had been halved by mutual agreement at the Borrower's request. II. MAIN IMPLEMENTATION ISSUES 1. Project Design (a) Project Management Arrangements 9. The principal source of the Association's concern in the early stages of implementation was the "late" arrival of technical assistance experts for project management who, according to the appraisal mission's scheduling, were supposed to arrive as follows: the first after three months, the second after six and the third after nine months from the date of credit signature. Nine months after credit signature IDA considered the project to be six months behind schedule because of the non-arrival of these - 5 - experts. In fact, it took 12 and 14 months after credit signature for these experts to arrive and this more realistic time was allowed in scheduling the implementation of the Second Education Project. 10. The second problem related to the amount and type of technical assistance. In January 1973, the project unit comprised a part-time direc- tor, a full-time deputy director, a procurement officer, an accountant (but not the required architect), and the school design unit was staffed by a project architect and project engineer, supported by clerical/secretarial staff and draftsmen. These local teams were assisted by three Unesco experts - an educational administrator to assist in equipment procurement among other things, an architect and a quantity surveyor. By June 1973, considering them no longer essential, and concerned about their high cost, 1/ the government requested the early termination of the positions of expert educational admini- strator and architect, and these were terminated in October 1973. The Quan- tity Surveyor was kept on but died in January 1974 and efforts to replace him failed. The Association approved the curtailment but reserved the right to require re-filling of these positions. Thus, only 47 of the available 120 man-months were utilized. 11. The Borrower's judgment as to the dispensability of the experts was largely correct: by May 1974, the project unit was considered by IDA to be a model, effective and well-organized and the lost time in project implemen- tation had almost entirely been made up. The high caliber of local project managerial staff and experts and their effective interaction accounted for this success. However, the termination of the position of expert architect was premature since the shortage of experienced draftsmen and qualified clerks-of-works might have been partly remedied if an architect had been available for about 14 more months to share with the local architect the burden of site supervision and staff training. As the experience showed, the technical assistance for project implementation as envisaged in the project design was about twice as much as was needed (120 instead of about 60-65 man-months) and should have provided more specifically for equipment procurement expertise (paras. 20-23) which was the area of greatest weakness in Somalia. 2/ By comparison, the much larger and complex Second Education Project provides technical assistance in architecture, quantity surveying and procurement - in each case for terms of 2-1/2 years instead of three to 1/ After a visit to the country and discussions with officials, Unesco estimated (in June 1973) that the experts were costing the country US$90,000 per man-year and that this was exorbitant in relation to the size of the project and the financial resources of the country. No details of this calculation were provided. The completion mission estimated actual technical assistance project costs to have been about US$55,000 per man year. 2/ The expert in educational administration who generally assisted the proj- ect director proved to be very useful in equipment list preparation. four years as originally provided under the First Education Project. The need for this additional assistance does illustrate, however, the limits t'o the institution building impact of the assistance provided under the first project. I/ (b) Implementation Problems Related to Project Composition 12. The constructed buildings represented some departure from the originally agreed working papers and these departures indicate that more time was needed on preparation and appraisal. During implementation, the Borrower did suggest to IDA that appraisal missions should be of longer duration so that they might examine details of the project more thoroughly and so facilitate implementation. 13. In regard to the secondary school component, schedules of accommoda- tion were evolving constantly. The reconnaissance mission had found that all 14 secondary schools in Somalia (including voluntary agency schools) needed assistance and recommended the inclusion of 10 in the project leaving it to the government to list these in order of priority. The government's applica- tion listed 13 schools (two of which were eliminated by the appraisal mission) and a block of facilities to serve two existing schools in Mogadishu (which was changed at negotiations in favor of one new school - Moalim Jama). At negotiations also, Gardo was substituted for Gebileh as being more centrally located. A new (as distinct from improved) school (Hodan) for which the Somali delegation to the negotiations failed to win agreement was constructed anyway. In September 1972, and in May 1973 after an inventory had been made of what facilities actually existed (a task which properly belonged to the project preparation stage), revised schedules of accommodation were agreed, which in general (a) reduced the number of commercial rooms and metalwork shops and increased the number of woodwork shops to relate better to the economic activities of the catchment areas, and (b) increased the size of some science laboratories to cater for 40 (as the credit application had envisaged) instead of 20 as the appraisal mission had proposed. In May 1974, it was agreed to build a new Hargeisa Girls' School instead of expanding the existing unsatis- factory facilities. I/ The regional office notes that the promotion and transfer of local personnel out of the Project Unit accounts partly for the continued need for technical assistance but that the benefits of the training provided in the project unit have not been lost to the country by this internal brain drain. A proposed Third Education Project (Credit 738-SO, approved August 9, 1977), is designed to provide five man-years for architectural services to assist in project execution. - 7 - 14 The schedule of works at the National Teacher Education Center was also modifi -1 (a) to cope with more ambitious enrollment targets, 1/ (b) because existing buildings, originally expected to be available, were no longer available to provide space and (c) because electrical and water facil- ities unexpectedly broke down soon after credit signature. Thus more boarding and staff houses (as had been unsuccessfully sought at negotiations), more science laboratories, a new multimedia workshop, a water well and electrical generating capacity were provided. 15. By comparison with the approximately 10,600 square meters of con- struction area agreed to at negotiations, some 19,100 square meters were actually constructed. 2/ The additional costs involved were financed by the Borrower and by savings on technical assistance. 2. Physical Implementation (a) Buildings 16. The credit documents required international competitive bidding for all civil works contracts despite the fact that IDA had recognized dur- ing appraisal that it was unlikely that foreign bidders would be attracted. 17. At the Borrower's request, some minor concessions in procurement were made by IDA, for example, agreeing (1) to waive international competitive bidding for (a) some urgently required materials for some works at two insti- tutions and (b) some of the remote rural schools, and (2) to construction by the government through force account in cases where no bids were received (and one such contract was negotiated with the Ministry of Works). With regard to the rest of the works, IDA stood firm on international competitive bidding. However, only five firms were prequalified (all local) and four of these shared 13 contracts (PCR, para. 2.08). The buildings were completed over the period December 1974 to July 1976, about six months to 24 months behind the appraisal report schedule which, as noted in para. 9 above, allowed inadequate time for recruiting the necessary technical assistance. Under the Second Education Project, however, local advertising was accepted for similar second- ary school extensions and prior review of contracts by IDA was required only for contracts in excess of US$150,000. 1/ As the PCR points out, compared to an appraisal estimate of 51,000 pupils in grades 1-8 in 1975-76 (adjusted by the completion mission to 68,000 to take into account schools which were private at the time of appraisal), the school system carried 219,000 children in grades 1-6 in 1975-76. 2/ The Credit Agreement referred to extension in regard to the Technical Institutes and Hargeisa Girls School; in fact, the original intention was to reorganize and improve without adding floor area. - 8 - 18. The completed buildings were considered by IDA to be functional and sound (although the roof support framing appeared flimsy in some schools) and the finish was not of a high standard. Insufficient or inexperienced on-site supervision (mainly by recent technical school graduates) was partly blamed for the low construction standards and for some carelessness in final acceptance of buildings (para. 23, PCR, paras. 2.10, 2.11). In order to correct this problem, the credit agreement for the Second Education Project specifically required that two building inspectors for site supervision be employed in the school design unit. (b) Equipment and Furniture for Project Schools 19. Delays in procurement of equipment and furniture resulted in a postponement of the closing date and these delays are attributable to the lack of experience in procurement, the relatively unprepared state of the project at appraisal and credit signing and to the difficulties experienced with the method used for purchasing such a large number of small items. 20. Delays in the preparation of lists occurred because of the need to await finalizing of (a) some curricula, which in turn depended on the arrival of experts under UNDP programs who assisted with list preparation, (b) the schedules of accommodation at the schools (para. 13) and (c) the inventory of existing equipment and furniture in existing schools for which a special tour had to be made. 21. The project unit tried unsuccessfully to obtain IDA's agreement to local tendering for furniture in compliance with the tendering laws of Somalia. The unit pointed out that, according to local experience, the capacity had been demonstrated among small furniture manufacturers to produce the required furniture at lower prices than those of large, estab- lished firms but that these small manufacturers lacked the "high technical literacy required to comply with precise technical specifications" and so could not bid. Eventually, however, a local firm did bid and secure a fur- niture contract. 22. The completion report outlines the slow process of purchasing the large number of different items of furniture and equipment by international competitive bidding which was obligatory for all items (paras. 2.13-2.15) and notes problems of inappropriate selection, distribution and installation arrangements (paras. 2.15-2.17). These problems might have been reduced by a more concerted effort on IDA's part to assist the project unit in list preparation (particularly specifications) and in designing arrangements for receipt and installation, by provision of more procurement expertise and by greater provision for local competitive bidding. By comparison, the Second Education Credit Agreement provided for up to US$100,000 worth of purchases by local competitive bidding in the case of packages of less than US$30,000 and for IDA review of contracts for furniture and equipment only where they exceeded US$40,000 (up to an aggregate total of US$200,000). -9- (c) Costs 23. The completion report indicated (paras. 3.01-3.03) that there was a cost overrun (in local currency terms) of about 10% (or 23% in US dollars). Savings were realized in technical assistance because (a) UNDP supplied tech- nical assistance for education (para. 5) and (b) six of the man-years provided for project administration were not utilized (para. 10). Furniture and equip- ment costs were about 3% less than estimated but project administration was over twice as much because of higher than expected salary increases and a longer implementation period. The only significant overall increase was 43% in construction costs. This increase is accounted for partly by the 80% in- crease in actual area constructed (para. 15) which was counter-balanced some- what by the appraisal mission's over-estimation (by about 20%) of construction costs. The standard of finish of the buildings was also lower than originally expected. 1/ (d) Enrollments 24. The enrollment capacity of the institutions expanded by the project was (a) 1,000 places in the National Teacher Education Center (300 places above the original estimate) and this was fully enrolled in April 1976; (b) 5,160 places in the 11 secondary schools (730 more than estimated) but only 1,893 pupils were enrolled in April 1976, and (c) 740 places in the technical institutes (80 more than estimated) but only 570 students were enrolled in April 1976. (Annex 1-2 of PCR). 25. After the expansion of the National Teacher Education Center beyond the originally agreed size (para. 14) had been completed, the Borrower decided to terminate the elementary teacher training program at the Center and utilize it exclusively for secondary teacher training. The necessary prior consulta- tion with IDA was not held (PCR, para. 4.09). The Second Education Project is assisting in meeting primary teacher training needs by establishing a primary teacher training college. 2/ 1/ During the actual construction period, Somalia experienced an unexpectedly high rate of escalation of wages and prices and contractors consequently clamored for an upward adjustment of their contract sums. It does not appear that the government made these adjustments. It is therefore dif- ficult to determine the extent to which these lower standards reflect contractors' efforts to protect themselves from the rising costs. 2/ At the time of appraisal, the structure of the elementary-secondary school system comprised primary schools of grades 1-4, intermediate schools of Grades 5-8 and secondary schools of Grades 9-12. (The elementary teacher training covered Grades 1-8). In 1975, this structure was changed into one comprising primary schools of Grades 1-6 and secondary schools of Grades 7-10). - 10 - 26. The factors which have militated against achievement of planned secondary school enrollments have been noted by the completion mission (PCR, paras. 4.03-4.05). Full enrollment is expected to be achieved by 1978-79, some two years later than originally planned. The project schools have not contributed to an improvement in the proportion of girls enrolled in Grades 7-10. In its credit application the government expressed the hope that girls' enrollment would rise from about one-third to about one-half of total enroll- ment and provide satisfactory use-factors for home economics rooms. Girls constituted 25% of enrollment nationally in 1970-71 and 27% in 1972-73. How- ever, in project schools (which constituted the bulk of the national enroll- ment), girls comprised 18% of enrollment in 1973-74 and only 13% in 1975/76 and the home economics rooms are seriously underutilized at present. I/ Some of this decline was due to the drought and other extraordinary factors, but it is still unclear how and when this situation will improve. 27. The planned craft-level, technician-level and commercial courses were provided. Enrollment has fallen below expectations (because of the tem- porary diversion of so many pupils to the literacy campaign) but is now build- ing up. As the individual specializations (para. 5) provided or strengthened under the project are only just beginning to operate, there is no information on the extent to which each has met its enrollment target. For these reasons also it is difficult to come to firm conclusions about the fact that only 100 trainees are using the facilities for part-time upgrading and training com- pared to 800-1,000 per year expected at appraisal. Since the government has proceeded to construct a vocational training center (with bilateral assist- ance) it apears that the project facilities would not be needed extensively for part-time vocational training for the next few years at least. (PCR, paras. 4.13, 4.63, 4.64). 28. The important sector developments which delayed the achievement of, or affected, enrollment targets were not specifically examined or reported on in any detail by IDA in the context of implementing this project. They were studied only in connection with a Second Education Project. (e) Maintenance 29. The completion mission has noted the inadequacies of maintenance of physical facilities (PCR, para. 2.18). 3. Supervision 30. The supervision of the project was generally effective. It was valuable that four months after credit signature (even before effectiveness) an 1/ PCR; Annex IV-1, para. 4.47. Also Annex IV of Report No. 438a-SO, "Appraisal of a Second Education Project in the Somali Democratic Republic", July 22, 1974. - 11 - architect wab sent to Somalia who gave detailed advice to the project director on preparing an implementation schedule, progress and cost schedules, quarterly reports and registers of contracts. Over the 58-month implementation period, 14 missions proved sufficient to help keep implementation moving relatively smoothly. 31. It was also helpful that the Association was flexible in agreeing to construction by force account for remote schools and to adjustments in sche- dules of accommodation within the framework of project objectives. The transfer of responsibility for supervision to RMEA also appears to have been of assistance and was well appreciated by the Borrower. 32. Supervision efforts could have been stronger in regard to: (a) advising against the location of the Raghe Ugaas school next to the new Mogadishu port and in following up on this question so as to resolve the problems before con- struction. 1/ (b) undertaking visits to the project institutions outside of Mogadishu and Afgoi during the construction period (PCR, para. 1.06) for which purpose missions of longer duration could have been scheduled; (c) monitoring of equipment procurement so as to minimize errors in list preparation and rationalize the system of distribution and installation (paras. 19-22); (d) more frequent use of educators on supervision missions (the first such mission which included an educator was the fifth mission sent in December 1972 - somewhat late in view of the problems of curricula and equipment list preparation which were being experienced). (e) more thorough reporting on sector developments affect- ing the attainment of project targets (para. 28). 1/ This site is expected to be absorbed eventually in port development. The problem could have been avoided if, in October 1973, as the PCR points out (paras. 2.003, 2.05) IDA had followed up the warning of this possible difficulty and delayed construction until the matter could be clarified. The fate of this school is not entirely clear. A mission of August 1976 reported that it would not be demolished and that alternative port devel- opment plans were being studied. However, the opinion of the regional office is that it will be demolished within two years (by 1979). - 12 - III. EDUCATIONAL IMPACT 33. It is too early to evaluate the educational impact of the project especially in view of the educational policy changes and the drought which have affected the achievement of targets (paras. 30, 31). At this stage, however, some observations are possible on some of the more qualitative aspects of project achievements and some of these have been treated by the completion mission. 34. The provision of science teachers for secondary schools has been satisfactory but, in regard to practical subjects, progress in teacher train- ing has been slow. Some special arrangements have been made which should shortly meet the needs except in regard to home economics where the academic level of the intake into teacher training programs (completed primary educa- tion) appears too low for secondary level teaching (PCR, para. 4.21-4.28, Annex IV-12). Consequently, science laboratories are generally operating efficiently but some workshops are not. In home economics, in many cases, the lack of a sufficient number of girls to constitute a class has also hampered operation (para. 26). The mobile units have been adequately pro- vided with staff but lack films and this raises the question as to whether a film production center should not have been provided (as the project identification and reconnaissance missions had suggested) as the first pri- ority which could then have supported the mobile units in the field. New curricula have been developed for secondary schools and technical and com- mercial subjects. (PCR, paras. 4.29-4.32). 35. It is important to understand the reasons underlying the planned diversification of the secondary school program. 1/ The appraisal mission felt that the Somali education system was in need of qualitative improvement at all levels - elementary, secondary, technical, teacher training - so that it could better relate to the needs of the labor market. At the secondary level the key problems were the predominantly academic curricula (geared principally towards preparing persons for post secondary education abroad), the purely lecture-style of teaching (even in science) and the lack of build- ings, equipment and qualified teachers. The mission expected the secondary schools to produce persons who would eventually or immediately enter the labor force as middle and upper level professional, technical and administrative workers, technicians or clerical and sales workers, but, considering that an increasing number of secondary school leavers would not be following post- secondary courses, felt that a new curriculum should offer a broader education 1/ The reasons underlying the diversification of the secondary curriculum appear to have been confused in the PCR, paras. 4.38-4.61. The relevant paras. of the Appraisal Report are iii, 1.05-1.06, 2.01-2.04, 2.10, 3.01-3.03, 3.06, 3.10-3.11. The PCR places a degree of emphasis on vocational objectives which might have been justifiable if vocational wings had been provided. - 13 - with some pre-vocational content. Thus, the mission accepted the government's outline of a new'diversified curriculum as the basis for improving the second- ary schools by providing new buildings, furniture and equipment for practical subjects, science laboratories and libraries. 36. The government's aim was to improve science teaching, skills in the use of libraries, attitudes and awareness regarding the industrial, agricul- tural and commercial world and the high educational requirements of production processes, exposure to materials and their manipulation, awareness of the forms which products should take in Somalia and opportunities for prevoca- tional experimentation and orientation (which might later cause the students to pursue careers in fields other than those requiring a purely academic education). The unified curriculum, comprising 36 periods per week, therefore proposed to devote 9 periods to science in grades 9-12, 4 periods to practical subjects (wood/metal work for boys, home economics for girls and agriculture for both sexes) in Grades 9 and 10 (with pupils in other grades pursuing these on an optional extra-curricular basis) and three periods for office skills together with one for library work as an option for pupils in Grades 11 and 12. 1/ These were outlines; the final curriculum was expected to be produced with the help of a Unesco team-of experts. However, it seems clear that, from the outset, the only pre-vocational element was that of office skills, the rest of the practical subjects serving a function of general education and orientation. 37. As a result of a structural change in the school system, the sec- ondary schools now comprise Grades 7-10 (instead of 9-12). In addition, the allocation of time to practical subjects ("production") is now only two (in- stead of four) of 36 weekly periods (PCR, Annex IV-8) - a total allocation which appears inadequate for the kind of general educational purpose originally envisaged. 38. The completion mission has surveyed the views and aspirations of children in secondary schools to assess the impact of the secondary school diversification at this early stage of the operation of project schools. While useful information or areas of future possible inquiry can be suggested by a cursory survey, it is important to avoid overdrawing conclusions. Two interesting points have emerged, namely: (i) that children in project schools (diversified) attributed significantly more value to animal husbandry and more value to agriculture, carpentry and office skills than did children in non-project schools (not diversified), and 1/ The credit application referred to practical subjects as optional for Grades 10 and 11 and obligatory for Grades 9 and 10; it also allocated no periods to agriculture in the outline distribution of periods but mentioned agriculture in the list of practical subjects. The appraisal report did not clarify the confusion regarding either Grade 10 or the allocation of time to agriculture. - 14 - (ii) that boys in project schools showed occupational aspira- tions and expectations in a more "manual" direction that did their counterparts in non-project schoolds. This suggests that the goals of widening career perspectives are probably being achieved. As regards other tentative findings of the survey relating to (a) academic achievement, (b) "self-confidence", (c) health and (d) the effect of socio-economic circumstances on academic achievement, systematic and thorough research and the involvement of local authorities such as teachers, medical specialists and testing specialists would be needed before issues can be properly identified. At this stage, therefore, it is difficult to accept the completion mission's conclusions and inferences on these topics. I/ 39. The completion report notes that training standards were devised and trade testing was done (paras. 4.65-4.68) but that the tracer system (to follow-up graduates of training programs) and the proposed Vocational and Technical Education Council (to help relate training programs better to the employment needs) were never established (paras. 4.69-4.71). 40. The proposed items relating to publications and the Somali language academy were not financed by the First Education Project (para. 2). The government subsequently established a publications service and introduced Somali as the language of instruction (replacing Arabic, English and Italian) in the schools. A National Language Commission was established in 1971 to write textbooks in Somali and was expected to be absorbed into an Academy of Somali Studies (established in 1973) which is being assisted under the Second Education Project (Credit 511-SO of September 1974). A curriculum and text- book unit of the Ministry of Education is functioning, and, on the basis of the nationalized printing industry, a State Printing Agency has been estab- lished and textbooks in Somali are being produced. 2/ 41. On the whole, the manpower assumptions of the appraisal mission have proved to be somewhat conservative. Secondary and technical school graduates are easily employed and the need for primary school teachers remains consider- able. (PCR, paras. 4.01-4.13). IV. CONCLUSIONS 42. The First Education Project provided valuable experience in project management for Somalis (para. 11). Implementation might have been smoother I/ PCR, paras. 4.38.4.61 are relevant. CPS considers the survey to have provided some important information. The regional office disagrees with the points made in paras. 36-38. 2/ Paras. 3.06, 3.09, 4.02-4.04 and 4-6 of Appendix 2 of Report No. 438a-SO "Appraisal of a Second Education Project in the Somali Democratic Republic", July 22, 1974. The Third Education Project envisages assistance to text- book production. - 15 - if the project had been better prepared by the time of credit signing (paras. 12-15) and more closely supervised in certain respects (para. 32) and if architectural expertise had been provided for about a year longer (para. 11). The project objectives are being achieved with some exceptions in the case of (a) teacher training and vocational training (paras. 25, 27, 39), (b) diversi- fication of the secondary school program (paras. 34, 37) and (c) enrollment of girls (para. 26). 43. The lessons learned and experiences gained in the course of design- ing and implementing this project have influenced the design of the Second Education Project in Somalia - for example, on the amount and duration of technical assistance (para. 11), the more liberal procurement provisions relating to the local advertising and prior review of contracts by IDA on both civil works and furniture/equipment (paras. 17,22) and better staff- ing of the project units for procurement and site supervision (paras. 18, 22). However, the experience with this project does emphasize; (1) the importance of linking project management arrangements as closely as possible to the established governmental services for project implementation as was done in this project (paras. 6,11); (2) the need for adequate arrangements for site supervision (para. 18, PCR. paras. 2.10, 2.11); (3) the importance of sector reporting activity in the context of implementing a project especially during a period of major policy changes in the Borrower's education sector (paras. 24-28, 32, PCR paras. 4.03-4.05, 4.09-4.13, 4.21-4.32, 4.63-4.64); (4) difficulties of achieving the kind of inter-ministerial cooperation necessary for establishing effective voca- tional training councils (para. 39; PCR paras. 4.69-4.71); (5) the need for further work on evaluating operating out- comes of the project (para. 38; PCR paras. 4.38-4.61).  ATTACHMENT - A.1 - PROJECT COMPLETION REPORT I. PROJECT ORGANIZATION AND MANAGEMENT 1.01 In accordance with the Development Credit Agreement, a Project Unit was established within the Ministry of Education and a School Design Unit within the Ministry of Public Works respectively, but directly responsible in respect of the project to the Director of the Project Unit. 1.02 The Project Unit has been headed successively by three Project Directors. From June 1972 until October 1973, the Project Unit had the advisory services of an expatriate educational administrator recruited by Unesco and financed under the technical assistance provisions of the Credit. In addition, the Unit is staffed with a local procurement officer, an accountant and ancillary staff. Recently two assistant procurement officers have been assigned to the Unit. Supporting staff has comprised a clerk-typist, two messengers and two drivers for the vehicles provided for the joint use of the Project and the School Design Units. 1.03 The School Design Unit has been staffed by an engineer, an archi- tect and a draftsman. Local professional staff were advised by an expatriate architect from July 1972 to October 1973, and by an expatriate quantity surveyor from August 1972 until January 1974. Both specialists were recruited by Unesco and financed under the Credit. During the construction period, School Design Unit staff were assisted by six technical institute graduates who provided continuous on-site supervision. 1.04 The Project and School Design Units are situated in close proximity to facilitate coordination of project functions. Office furniture and equipment and two vehicles were financed under the Credit. 1.05 Project execution was delayed because of late recruitment of specialists and revision in project scope.1/ 1.06 Progress following the slow start has generally been satisfactory. On the whole, Project Unit staff have organized and handled project implementation activities energetically and capably. However, two functions have not been as carefully organized or supervised as they might have been: (a) the process of receiving instructional equipment and furniture and their distribution to project institutions; and (b) following up deliveries with site visits to check their condition on arrival and to ensure correct installation and operation. IDA supervision of the project was from the headquarters to about January 1974, at which time the Education Section of RMEA assumed this esponsibility. Since the Credit Agreement was signed in June 1971, elevenW' supervision missions have visited Somalia, at intervals not exceeding seven months and which during the earlier implementation stages were as frequent as every three to four months. Regretfully, not one of these missions managed to visit any of the project institutions outside of Mogadiscio and its environs. 1/ Annex I-1 summarizes the evolution of the project during the project generation stage. 2/ One final supervision mission visited Somalia in June 1976 after the completion mission. - A. 2 - 1.07 On the basis of agreed space and performance standards, draw- ings for all school facilities were prepared by the School Design Unit. The quantity surveyor prepared tender and construction documents - which are being adopted for the second IDA education project (Credit 511-SO) and will probably be used as models for all future construction work for the MOE. The School Design Unit's performance was weak in the supervision of construction on site. The Unit's architect or engineer visited sites in the Mogadiscio area every week and tried to visit outlying sites once every six weeks. However, the burden of continuous day-to-day supervision rested with technical institute graduates who had been given some prior training by the Unit's professional staff, but essentially lacked the experience and drive necessary to effectively carry out their duties. 1.08 In April 1973, the Borrower requested the early termination of two of the expatriate specialists, the educational administrator and the architect on the grounds that they had completed their basic tasks and that local personnel could complete the remaining work satisfactorily. An additional, and probably principal reason was the Borrower's reluc- tance to pay the salaries required. The Bank Group agreed to the request and both departed in October 1973, after each completing about 15 months of service. The quantity surveyor, still needed, was to be retained in his post until July 1974 but died in January 1974, after 17 months service, and was not replaced. Hence, only about 4 man-years of the 10 man-years of technical assistance allowed in the Credit for project implementation support was actually provided. In view of the inexperience of the Project Unit and School Design Unit staff, the recruitment of technical assistants financed by the project was a critical factor in developing the local capacity to design and implement the project. II. PHYSICAL EXECUTION OF THE PROJECT 2.01 General. Physical elements of the project have been substantially completed. Construction work has been completed at all except one school, which is in the finishing stages, but at ten of the other thirteen project in- stitutions completed work is still under defects liability. About 17% of the required furniture and equipment have yet to be received, although ordered and paid for. A comparison of originally forecast and actual implementation pro- gress is provided in Annex II-1. 2.02 Effective initiation of project implementation lagged a year behind schedule due to late recruitment of technical assistance specialists for the Project Unit, staffing changes in the Unit and in the echelons of the Ministry of Education, and successive revisions of accommodation requirements at project institutions. After the slow start, implementation of the project - A.3 - has been energetically carried out and the lost time was made up as con- struction and pcocurement began. Construction work has taken on the average about 50% longer to complete than originally estimated and, during the latter stages of implementation, progress was delayed by difficulties in obtaining bids for equipment items required in very limited quantities. Apart from these delaying factors, the principal implementation problems encountered were: (a) shortages and low quality of the.certain imported building materials (which were attributable to the restrictions of mandatory produrrment through the central Government purchasing agency); (b) inadequate performance of building contractors; and (c) difficulties of supervising con- struction activities - particularly at the more isolated locations - with the inexperienced site supervision staff. 2.03 Project Sites. The sites for the two new schools included in the project (Moalim Jama Secondary School in Mogadiscio and Halane Secondary School in Hargeisa) are satisfactory and accessible to potential users. All other project institutions were extensions to existing facilities except for one school which was replaced on a new site prior to start of work. It was relo- cated on the original premises of Hodan Secondary School in Mogadiscio by means of a crash "self-help" program, and appears well placed. Also, a new conven- iently situated site has been made available for the relocation of Raghe Ugaas Secondary School in Mogadiscio whose buildings, which are adjacent to the new Mogadiscio port, are to be taken over by the Port Authority. However, funds approved for FY1976 by the Ministry of Finance for the replacement of secondary school Raghe Ugaas will cover half the estimated cost of So.Sh. 4 million and, the rest will be provided next year. It should be noted that although it was known that the present site would probably have to be transferred to the Moga- discio Port Authority, as recorded in the hupervision report Of October 30, 1973, the construction proceeded normally, and was not delayed pending a final decision by the Government. The matter was not referred to in any of the sub- sequent supervision reports until that of December 10, 1975 - by which time construction of the extensions had been completed. 2.04 Project Buildings. Design briefs for the new institutions were not finalized until almost two years after the Credit was signed. Revisions to the original schedules of accommodation ("architectural worksheets") were pro- posed by the Government in August 1972 for the Lafole College of Education at Afgoi (originally called National Teacher Education Center). After considering their effects on the curriculum, the Bank Group approved the proposed revisions at the Lafole College of Education and revisions as regards the secondary schools were approved during a supervision mission in April, 1973. The two technical institutes in the project were not affected by those revisions. 2.05 Sketch plans prepared by the School Design Unit and reviewed by the Bank Group in some cases did not conform to the provisions of Approved qchedules of accommodation. For example, the two technical institutes included new con- struction whereas none was allowed for originally, and an entirely new school was provided to replace the Hargeisa Girls' School which was originally only to be ex- tended. New accommodations also deviated slightly from approved sketch plans at the Hargeisa Technical Institute. Tables comparing premises actually provided at each project institution with the original and the revised schedules of accommodation are - A.4 - in the Project File. A summary comprising actual and planned teaching unit provisions at the eleven project secondary schools is given in Annex 11-2. 2.06 The overall gross area of new construction for all project items exceeds the appraisal estimate by 80%. Comparisons of the actual areas of new accommodation provided at each project institution with those allowed in the original or revised accommodation schedules are tabulated in Annex 11-3. 2.07 As a result of the agreed revisions, the 6,900 places now avail- able at the project institutions exceed the 5,790 places included at appraisal by 19%. However, actual enrollments at project institutions total only 3,463. This is 40% below planned capacity and 50% below their actual capacity as extended; the reasons for this low enrollment are discussed in detail in paras. 4.04-4.06. Comparisons of present enrollment with actual and planned student capacities at each project institution are tabulated in Annex 11-2. 2.08 Construction work at thirteen of the fourteen project institutions was carried out under contracts awarded on the basis of international competi- tive bidding. Bidders were prequalified in accordance with Bank Group Pro- curement Guidelines. Of the nine civil works firms - eight local and one foreign (Kenyan) - which expressed interest in bidding, five local firms were prequalified. The Kenyan firm's application was not considered because it was received after a specified closing date for the registration of interest and three of the local applicants were rejected because they were not considered sufficiently experienced and organized to provide acceptable standards of work. The thirteen construction contracts were awarded to four of the five prequalified firms (each having between two and five contracts). Efforts to obtain bids for one of the eleven secondary schools (Ahmed Warsama at Belet Uen) proved fruitless, resulting in a negotiated contract in May 1974 with the Public Works Department utilizing departmental forces. 2.09 Extension to the Lafole College of Education was completed in sixteen months, about one yasr behind schedule. Construction periods for the secondary schools and technical institutes varied from one year to over two years, averaging about eighteen months compared with one year estimated at appraisal. 2.10 Project buildings are functional, economical and simple in design. In some cases the arrangements of buildings on the sites are not well-handled. The latter shortcoming is particularly noticeable at the Lafole College of Edu- cation at Afgoi, where the seemingly haphazard arrangement of the widely spaced and rather bleak new buildings isolates them from each other and from the original complex of pleasantly grouped structures. New buildings provided for both the secondary schools and the college are single story structures of similar design, with simple reinforced concrete post and beam framing, concrete floor slabs, and walling generally of concrete block but occasionally of rough field stone. They differ only as regards roofing - the college buildings having flat reinforced concrete roof slabs and the schools single pitched roofs, which in the south of Somalia are usually of corrugated asbestos cement sheeting and in the north of corrugated iron sheeting. Some minor design defects such as the excessive per- manent ventilation provisions above windows, have now been amended for use in the second IDA project, as well as changes in the louvre type windows and flush - A.5 - 1/ toilets.-- The omission of window guard bars and site fencing, which has made schools vulnerable to vandalism is being rectified, as funds permit. Gross construction areas at the two new schools are equivalent to an average of 4.5 m2 per student place which is below the median figure (about 6.0 m2 per place) for secondary schools assisted by the Bank Group/IDA and reflects the austere standards practiced by the Somali Government to widely spread educa- tional facilities despite severe financial constraints. 2.11 Apart from the rather flimsy roof support framing in some schools, the buildings appear structurally sound. However, the standard of finish work is poor, and workmanship is generally rough - particularly as regards plaster work, finishes and built-in furniture. The low quality of many materials is attributable to the procurement policy of the Governments' central importing agency from which contractors are required to purchase all imported materials. Faulty materials so purchased and for which it has not been possible to obtain replacements include door handles, sanitary fittings, plumbing fixtures and building timber. The poorest workmanship is at the school extension constructed by the Public Works Department at Belet Uen. Insufficient or inexperienced on-site supervision must bear some share of responsibility for these construc- tion standards. There is some implication of careless final acceptance of buildings containing faulty work - a case in point being the kitchen premises in the Lafole College of Education, for which retention funds were released in January 1976 although the oil ranges installed had apparently never worked throughout the twelve months defects liability period, because they evidently had not been provided with an adequate exhaust system. 2.12 Instructional Equipment and Furniture. Equipment lists for the two technical institutes and for the pre-vocational programs at the eleven schools were initiated by a Unesco/ILO team which visited Somalia in January 1972, and finalized by the technical specialists provided under a UNDP/Unesco project. Lists for other instructional equipment needs at the secondary schools were pre- pared by local or expatriate subject specialists. Equipment lists for the Lafole College of Education were developed by the Unesco team attached to the College. Vehicles and other requirements for the mobile agricultural training units were prepared by the Ministry of Agriculture on the basis of a plan of operations for the utilization of the units as approved by the Bank Group. Furniture lists for all project institutions were coordinated by the Project Unit. Lists of all equipment and furniture and draft tender documents were reviewed by the Bank Group. 2.13 Equipment lists were grouped in 64 bid packages by function (eleven for the Lafole College of Education, fourteen for the secondary schools, thirty- five for the technical institutes and three for the mobile agricultural training units) with furniture consolidated in a single bid package. Fifty-six suppliers expressed interest in bidding by a specified date and others who did so later were unfortunately precluded from bidding in the mistaken belief that such denial was in line with Bank Group procurement procedures. Tenders were issued between September and November, 1973. Suitable bids were received for about 65% of total 1/ Schools in the second IDA education project are being provided with simple casement type windows - either metal framed, where corrosion is no problem, or otherwise wooden framed - and simple pit latrines will be used. - A.6 - equipment and furniture items tendered and contracts for these items were placed with five firms in May, 1974 - about eighteen months behind schedule. The Bank Group approved the use of direct purchase procedures for the balance of needed equipment from suppliers after receiving competitive quotations. After all items on the original lists had been ordered, the Association also agreed to the purchase of library books and small expendable items not shown on the original lists. In all, eighty-eight contracts have been awarded on this basis. For all equipment and furniture contracts, payment was by Letters of Credit. Great difficulties were experienced in persuading firms to make offers for the supply of items required in limited quantities. 2.14 The procurement process has taken between eighteen months and two years to complete. The first shipments of equipment were received in September, 1974 and supplies against small contracts are still arriving. About 17% of total equipment and furniture requirements had yet to be reeeived at the time of the completion mission, including ordereplaced amounting to about US$250,000 equi- valent. A comparison of originally forecast and actual implementation progress is tabulated in Annex II-1. 2.15 Over 90% of total equipment and furniture requirements have been imported. All consignments were shipped to Mogadiscio where after examination and clearance, items were repacked and forwarded - uninsured1 - on chartered vehicles to their ultimate destinations. A high proportion of the instances of damage, missing items or mismatching parts can be attributed to careless handling and the repacking process at the dock side in Mogadiscio. Arrangements for transhipment of consignments in Mogadiscio and for their receipt at schools were clearly not as well organized and supervised as they might have been. 2.16 The bulk of the equipment for each project school has been delivered but most of the heavier workshop items have still to be installed. A number of ittms have been delivered without operating or installation instructions or with instructions in a language not understood by school staff. Storage cup- boards, particularly for schools in the southern and central regions, were delivered unassembled and with duplicate and/or missing sections. Delays in their assembly have exacerbated already serious problems in protecting micro- scopes, balances and other sensitive equipment against destruction due to dust, etc. Thermostatic ovens received are not in use because teachers do not know how to use them. At some schools only one of several complementary physics, optics and other kits have been received. Some equipment received appears ex- travagant and there appears to be some imbalance between the numbers of little- used sophisticated instruments and of more frequently needed simple implements. 2.17 Furniture purchased substantially accords with agreed master lists. Much of the furniture has been imported and in some respects has not stood up well to the rigors of transportation and usage in Somalia. Unframed glass cup- board doors have suffered during transportation and plastic laminate lipping and surfacing to desks and table tops is tending to peel away from timber or particle board backing. 2.18 Maintenance. Three schools which had been completed and accepted by the Government and had been in use about eighteen months were visited. The contractor had corrected defects which had become apparent during the first 1/ Contrary to Credit Agreement Section 3.06(a). - A.7 - twelve months of operation. It was clear, houever, from visits to two institutions (i.e., the Lafole College of Education and the Wamo Secondary School at Kismayo) that no maintenance has been carried out - perhaps on the grounds that the schools are too new to require such attention. Unfortunately, with the rough treatment they are receiving, particularly at the Lafole College of Education, maintenance is already overdue. The mission found some items in deplorable condition, e.g., clogged and overflowing sinks, broken plumbing fittings, large areas of crumbling wall plaster, soiled paintwork, broken hard- ware on doors and built-in furniture, peeling table tops, saturated filter beds, etc. Similar conditions were observed at some of the eleven project institu- tions still within the defects liability period. However, in these circum- stances it is understandable to leave the rectification of major defects to the contractors who are still responsible for the buildings. Responsibility for the maintenance of educational facilities has been delegated to the local educa- tion officer for each region, who divides the appropriate funds among the schools under his jurisdiction. On receipt of a request from a school principal for maintenance services, the education officer arranges with the local Public Works section to undertake the work necessary against payment from the school's allo- cation. Budget allocations vary considerably from year to year and region to region (e.g., from US$800 equivalent in 1974 for one school in the northern region to only US$300 equivalent last year, but up to US$8,000 equivalent in 1976), but the allocations rarely exceed about 0.5% of the estimated building costs. School staff and-students should be instructed on how to care for and preserve their buildings and equipment and when to engage the procedures avail- able for repair and maintenance. III. PROJECT COSTS 3.01 The total project cost of So.Sh. 28.1 million or about US$4.5 million equivalent exceeds the appraisal estimate, including the original contingency allowance limit, by about 10% in local currency, but by about 23% in terms of US dollars - US$396,000 equivalent - due to the change in the exchange rate during implementation. A detailed comparison of originally estimated and actual costs, broken down by component project items, is tabulated in Annex III-1. A compar- ison of originally estimated and actual costs, by categories of expenditure, is summarized in the following para. 3.02. 3.02 Construction costs are expected to exceed appraisal estimates, in- cluding contingency allowances by about US$1.0 million equivalent - which is almost entirely due to the greatly increased amount of new facilities construc- ted (80% - Annex 11-3) as offset by some corresponding reductions in improvements to the original facilities extended. Construction costs at most project schools covered improvements to existing facilities as well as new construction, but where the costs of entirely new construction can be isolated or identified, they averaged So.Sh. 785 (or US$126 equivalent @ US$1.00 = So.Sh. 6.23) per m2 compared with the average of So.Sh. 685 (or US$98 equivalent @ US$1.00 = So.Sh. 7.00) per m2 estimated at the time of appraisal (August 1970 prices). This represents an increase of only 14% in local currency terms (or 29% in terms of US dollar equi- valents) over the five years between estimate and the average expenditure point - A.8 - for construction funds. This is considerably below the average escalation of construction costs during the years concerned. Unit - or per m2 - building costs were overestimated at the time of appraisal, as suggested in the super- vision report of November 14, 1972, on the evidence of contract awards at that time. The construction cost increases were offset to some extent by lower than estimated costs for the mobile agricultural units, furniture and technical assistance. In particular, seven man-years of technical assistance allowed in the Credit for educational development services were provided by UNDP on a grant basis and therefore not financed from the Credit. Total Costs in Millions Appraisal Estimate Actual Costs Comparison A B C D Base Cost incl Base Costs_ Continencies C as % of B So.Sh. US$1' So.Sh. US$1/ So.Sh. US$./ So.Sh, US$ 1. Civil Works a) Buildings 8.57 1.23 10.13 1.45 14.60 2.34 + 44 + 61 b) Site De- velopment 1.02 0.14 1.20 0.17 1.62 0.26 + 35 + 53 c) Total (a+b) 9.59 1.37 11.33 1.62 16.22 2.60 + 43 + 60 2. Furniture 2.52 0.36 2.93 0.42 2.66 0.43 - 9 + 2 3. Equipment 4.87 0.70 5.66 0.81 6.20 1.00 + 10 + 23 4. Mobile Units 1.11 0.16 1.29 0.18 0.75 0.12 - 42 - 33 5. Technical Assistance 3.57 0.51 3.90 0.56 1.07 0.17 - 73 - 70 6. Project Admin- istration 0.51 0.07 0.56 0.08 1.23 0.20 +120 +150 7. Uncommitted (Contingencies) 3.50 0.50 - - - - - - TOTAL 25.67 3.67 25.67 3.67 28.13 4.52 + 10 + 23 1/ At exchange rate during appraisal: US$1.00 = So.Sh. 7.00 2/ At average exchange rate during project implementation: US$1.00 = So.Sh. 6.23 3.03 Actual costs per student place at the two entirely new schools in the project are compared in the following table with the unit costs estimated at appraisal and with the ranges of such costs for secondary school facilities in Bank Group-assisted projects: - A.9 - Costs per Student Place in US$ Equivalent Buildings Equipment (ncl. Site Dev.) and Furniture Total Academic & Communal Facilities a) Appraisal Esti- mate (Aug., '70 prices) $454 (one new school) b) Actual Costs (two $435 $185 $620 new schools) (So.Sh. 2,7101/) (So.Sh. 1,153-) (So.Sh. 3,8631/) c) Range of Costs for Secondary Schools in Bank/IDA-assis- ted Projects (mid 1975 prices) i) High $1,915 $485 $2,400 ii) Median $980 $410 $1,390 iii) Low $360 $180 $540 1/ Exchange Rate: US$1.00 = So.Sh. 6.23. 3.04 Disbursements. On May 31, 1976 all but approximately US$219,000 (or about 6.6%) of the Credit had been disbursed and 9f this about US$100,000 was committed against established Letters of Credit.!' The Credit has been dis- bursed at a rate of 73% of total project costs instead of the 90% allowed for in the disbursement schedule of the Credit Agreement (Schedule 1). The disburse- ment schedule has been revised twice at the request of the Government. One pertained to the amounts of the Credit allocated to each category of disburse- ment, while the other to the percentages which the revised amounts represented of total expenditures against the categories concerned. Annex 111-2 compares actual disbursements by year and semester with original (appraisal forecasts) and several subsequent revisions thereof. IV. OPERATIONAL RESULTS AND BENEFITS A. Manpower Development 4.01 On the basis of information supplied by the ILO-assisted 1968 Man- power Survey (published in 1970), the appraisal mission projected a 3% p.a. average rate of increase in wage employment for the 1968-80 period. In par- ticular, the total wage employment accounting for about 6% of the labor force in 1968, was expected to grow from 58,000 to 81,000 by 1980. Taking into 1/ As of September 30, 1976, the amount undisbursed was US$74,303.45 of which US$51,059.00 was committed leaving a balance of US$23,244.45 subject to can- cellation. - A.10 - account the need for intake in higher levels of education and training, labor force participation and attrition among employees, the average annual need for educational output between 1968 and 1980 was estimated to be the following: (a) degree or equivalent, 400; (b) secondary education (grade 12), 1,000; (c) intermediate education (grade 8), 3,400; and (d) elementary education (grade 4), 7,000. 4.02 From the aggregate general manpower projections and information on the need and supply situation in selected occupations, the appraisal mission arrived at the following recommendations: (a) Existing schools and new ones being built under self- help schemes and with EEC assistance would double the 1969 secondary school capacity by 1976, and would meet most of the projected need for secondary school output. The residual would be met by the addition of 600 student places to ten existing schools under the project, which would increase the capacity by about 10%. One new secon- dary school included in the project (a capacity of 600) was to accommodate enrollments then in facilities that could revert to use as primary schools. (b) It would be necessary, however, to revise and expand the Government's elementary enrollment target (the first four years of eight year primary education) for 1981 from 49,000 to at least 63,400 in order to provide sufficient intake for slowly but gradually expanding seccndary educa- tion.-1 This encouraged the Government to review the target and to place greater emphasis on the expansion of the lower level of education with the program of self-help school construction. (c) To respond to the expansion of primary education, the facilities at the Lafole College of Education would need to be expanded by an additional 400 student places so that 200 primary school teachers would be produced annually. (d) The number of faculty and enrollment at the National Uni- versity should be expanded with the continued assistance of the Italian Government and the EEC; and (e) The fields of specialized education, technical education, vocational training and agricultural training, would need to be strengthened. Upon the recommendations of the appraisal mission, it was agreed that the project would consist of components which"would increase the student places for secondary education by 1,200, primary teacher training by 400, technical education by 100, and provide eight agricultural mobile units for agricultural 1/ In 1970 the provision of a sufficient number of entrants to secondary schools was given as a main justification for the expansion of primary education. - A.11 - training. It was also agreed that the Ministry of Education and the Min- istry of Labor and Sports would strengthen vocational training by sharing T=new technical equipment and facilities at the technical institutes during evenings and vacations. 4.03 Secondary Education. The project was appraised prior to the nationalization of all private schools in 1972. The secondary school en- rollment projection by the appraisal team was based on secondary school enrollments in Government schools. This omitted about 30% of total secon- dary enrollment in private schools. The appraisal's projection, which was largely in agreement with the Government target, indicated that enrollment should increase at an average rate of 8% p.a. and intake at about 5.7% p.a. between 1968 and 1980. Thus, the enrollment of 3,900 in 1969/70 would be- come 6,000 in 1974/75 and 9,000 in 1980/81, raising the enrollment ratio from roughly 2% to 4%. Assuming that about 30% of total secondary students were enrolled in private schools, the above enrollment figures could be adjusted to 5,000 in 1969/70, 8,000 in 1974/75 and 12,000 in 1980/81. 4.04 Actual enrollment expansion is compared below with projected enrollment: 1971/72 1972/73 1973/74 1974/75 1975/76 1976/77 Projected- 6,700 6,900 7,100 8,000 8,600 9,400 Actual 6,900 7,700 7,800 2,000 4,700 7,100 1/ Private school enrollment was added to the Government school enrollment assuming 30% of total enrollment. Until 1973/74, the actual enrollment exceeded the projected enrollment by between 3% and 11%, but after 1974/75 it fell far below the projected figures despite the fact that construction of a new school and extension to ten exist- ing schools under the project had been completed. This drop in enrollment is attributed to a moratorium on all classes (with the exception of certain grades and technical and teacher training schools) to enable the students to partici- pate in the 1974/75 literacy campaign. But, lower enrollment continued in 1975/76 mainly due to the,fact that the majority of primary school leavers in 1974 were drafted into a crash primary teacher training program or taken in by technical and vocational schools (Chart 1). Moreover, there were no students entering the last year (Form 4) of secondary education due to the year lost during the literacy campaign. The project secondary schools were affected by these events as shown in Annex IV-1. Furthermore as the table indicates, the schools in the northern region hit by severe drought lost a part of the school age population in 1973 and 1974. 4.05 There is a good indication, however, that the enrollment will increase. A total of more than 7,000 students were llready enrolled in the especially arrangee school year of March to September, 1976_, By the 1978/79 school year the existing school capacity is expected to be fully utilized, with a total enrollment of about 12,000. 1/ This abnormal school year is still the effect of the literacy campaign. From the school year btarting Nof7ember 1976, all classes will resume normally. - A.12 - 4.06 The review of secondary school enrollment and output must be studied next in the light of needs of the monetary sector of the economy. As indicated earlier, the appraisal mission estimated a required average out- put of 1,000 p.a. However, the requirement was projected in the absence of the usual macro-economic indicators. It had to be based wholly on the man- power survey conducted in 1968. Furthermore, it predated the 1969 revolution- ary change in socio-economic orientation in Somalia which fundamentally affected development strategies. Before 1969, the physical infrastructure projects were accorded top priority with an allocation of more than 70% of public investment. In contrast, the present development plan places top priority on the productive sectors. Also since 1969, the role of the public sector in the economy has acquired increased importance through the national- ization of many private activities. These new developments have significantly affected the employment structure and generation, and the functioning of the labor market. In addition, the 1968 manpower survey was limited in its cover- age of establishments. It included those private establishments with five or more workers in 24 towns, and excluded more than 95% of those which had fewer than five workers. This omission inevitably distorted the pattern of the worker distribution requirements, particularly in industries such as whole- sale and retail trade. 4.07 A later manpower survey in 1971 took into account the strategies of the new Government and covered all sizes of private establishments (except private agriculture) in addition to the public sector. This survey revealed that the total wage employment in 1971 was 108,000 or about 10% of the labor force. With reference to the country's future investment plans and in the light of international comparisons, wage employment was projected to increase at an average rate of about 5% p.a. for the 1971-83 period. At this rate, wage employment in 1983 is expected to total 188,000, or about 13% of the labor force. Its implications for education are that between 1971 and 1983 the sector should ideally provide the following average output p.a. from different levels of education: (a) post-secondary education, 500; (b) secon- dary education, 2,500; (c) intermediate education, 9,600; and (d) elementary education, 24,700. In comparison, this revised output from secondary and primary education is 2.5 to 3 times greater than the appraisal estimates. How- ever, Somalia has not attained this target number of secondary school graduates since 1971. In 1975 there were about 2,000 graduates and in 1976, 1,500 are expected. One implication of this underproduction has been that those who graduate from secondary schools have been quidkly absorbed in the labor market or in the higher educational institutions. From 1979 for the first time, Somalia expects to produce the required number of 2,500 secondary school leavers to meet the needs of the monetary sector of the economy as estimated on the basis of the 1971 manpower survey. A new survey was conducted in 1975. The results of the survey are expected to be published soon. 4.08 Primary Teacher Training. An addition of 400 student places to the Lafele College of Education in Afgoi was justified: (a) to improve the quality of primary school teaching by replacing the untrained teachers (accounting for more than 50% of the total 1,300 teachers) with those who were trained; and (b) to meet the increasing need for more teachers as primary enrollment expands. The construction of this project item was completed at the end of 1974, but the - A.13 - facilities are not being used for the primary teacher training program as designed. Instead, they are used for the secondary teacher training program. This is the most significant deviation from the project as appraised. The Government has decided t Tconsolidate primary teacher training under the Min- istry of Education (MOE)- , at a new teacher training college under construc tion in Mogadiscio assisted by the second IDA education project. Upon comple- tion of construction in the summer of 1976, it will have the capacity to enroll 1,600 students. 4.09 When the Government decided to move the primary teacher training program from the Lafole College of Education to a new institution, communica- tions between the Government and the Bank Group were inadequate. It is doubt- ful whether the science and teaching equipment procured for the primary teacher training program will be suitable for the expanded secondary teacher training program, which has become the only program offered at the Lafole College of Education. There is also an issue as to the estimates of the need for secon- dary school teachers. The College of Education has now a capacity to enroll 1,000 students rather than 300 students at appraisal on the two-year secondary teacher training program. In the light of secondary school enrollment and the number of teachers projected at appraisal, the supply of 350 teachers p.a. would be far greater than required (Annex IV-2). But, the 1976 Government's short-term estimate of the secondary enrollment increase indicates that this greater supply of teachers will be needed to meet the requirement in 1981. 4.10 Another important and dramatic development in primary education since appraisal is the rate of its enrollment expansion, which is much greater than projected in 1970 by either the Government or the appraisal team. Enrollment projected at appraisal is compared with actual enrollment as follows: 1971/72 1972/73 1973/74 1974/75 1975/76 1/ Projected- 55,100 57,300 60,100 63,702 68,100 Actual 59,900 78,100 96,900 - 2 219,0003/ 1/ As the projection at appraisal included only the Government schools, private enrollment was added assuming it was 25% of total enrollment. 2/ Schools were closed due to the literacy campaign in which students participated as (student teachers) tutors. 3/ The figure represents about 35% of the primary school-age population. Actual enrollment grew more than three and a half times between 1971/72 and 1975/76, although it was projected to increase by about 25%. This rapid increase can be attributed to several factors: (a) 1972 introduction of the Somali lan- guage as the medium of instruction; (b) introduc ion of the new primary curri- culum; (c) 1973 to 1975 mass literacy campaign;.'V(d) 1975 reduction of the primary 1/ Newly established in 1973, the Ministry of Culture and Higher Education (MCHE) took responsibllity for secondary teacher training and the NTEC which was re- named the Lafole College of Education and became part of the National University. 2/ Students, teachers and civil servants were all mobilized to participate in the nationwide campaign to make the people literate in the Somali language. At the end of the campaign, it was reported that about one out of two were literate compared to one out of 20 in 1970. - A.14 - cycle from eight years to six years; (e) 1975 decision of free compulsory primary education; and (f) 1973 and 1974 drought, which has led 125,000 nomads to settle. These events have helped improve the internal efficiency by de- creasing dropouts and arouse the awareness of the expectation from schooling among the yople. In 1975 the Government decided to aim for universal primary education- .4.11 The rapid increase in primary school enrollment was unforeseen at appraisal, and, therefore, the estimate of required teachers was much too low (Annex IV-3). Consequently, Somalia had to introduce emergency measures to provide teachers. Since 1972/73, secondary school graduates have been serving in an eight-month National Service Volunteer Program as primary teachers. As a measure to accelerate the supply of regular teachers, the training program has recently been shortened from two years to one year. There are 3,000 stu- dents in this program at present. 4.12 The implication of this rapid rise in primary school enrollment on recurrent expenditure is significant. Whereas the appraisal mission estimated an average growth rate of 6.47 p.e. for the Ministry of Education for the 1970- 1975 period, the actual expenditure grew at the rate of about 15% p.a. - from So.Shs. 20 million to So.Shs. 39 million (in 1970 prices). As a percentage of the Government requrrent expenditure, the Ministry's expenditure increased from about 7% to 11%, The breakdown of the Ministry of Education expenditure as shown below indicates that the expenditure for each category in 1975 was about 70% greater than that in 1970. The administrative expenditure jumped due to the introduction of the decentralization policy and an increase in the number of regions from eight to sixteen. The increase in other categories is due to the rapid growth in primary school enrollment. (So.Shs. million in 1970 prices) 1970 1975 17 2/ A- - A B Administration 2 2 2 5 Primary education 15 13 19 23 Secondary/technical educa- tion and teacher training 6 5 9 10 Pre-primary education and adult education - - - 1 23 20 30 39 1/ A - figures at appraisal. 2/ B - figures at completion. The full impact of the project on recurrent expenditure will occur in 1977 when all project institutions are expected to be utilized. As estimated at appraisal, 1/ The Government plans to enroll from 1978/79 all of the 7-year olds among the settled population and from 1981/82, 20% of those among the nomadic population. 2/ If the recurrent expenditure of the Ministry of Culture and Higher Education is added, the percentage becomes 14%. This is compared with 10% forecast at aDDraisal- - A.15 - the additional expenditure due to the project will be in the order of So.Shs. 3 to 4 million. But it will account for only about 3% instead of 8% of its share in the Ministry of Education expenditure. 4.13 Technical Education and Vocational Training. Industrial activity employing technicians and craftsmen is small in Somalia. At appraisal, it was estimated that only 5% of the labor force was engaged in industry. Consequently, the project's assistance designed to increase physical capacity in technical education and vocational training was small, and was intended to upgrade the quality of the existing technical institutes by assisting curriculum development and providing equipment and facilities. These aspects will be reviewed in the next section. In 1971/72, about 400 students were enrolled in the four-year technician cour es at the Mogadiscio Technical Institute (MTI) and in the three- year craftsman'and two-year commercial courses at the Hargeisa Technical Insti- tute (HTI). In 1975/76, the number of students increased to about 550 (Annex IV-4). The two institutes together produce about 200 technical graduates annually. The need for craftsmen and technicians is increasing as the Government places em- phasis on the directly productive sectors. All graduates are guaranteed employ- ment. The Republic of North Korea is assisting in the establishment of a new Polytechnic with a capacity of 800 students in technician and craftsmen training programs. 4.14 Agricultural Training. Of the total labor force of one million, about 80% are engaged in agricultural and livestock activities. Present priorities for agriculture aim for a contribution to income and employment, and the gener- ation of foreign exchange. For example, the new development plan is to expand labor intensive banana and grapefruit production for export, develop rice and cotton to replace imports, and increase sorghum, maize and vegetable production to become self-sufficient. The Plan's shift of emphasis implies an urgent need in the education sector for agricultural training and extension service to farmers. 4.15 At appraisal the extension service was able to reach only a small pro- portion of the farming and pastoral population. The Farmer's Training Center at Bonka under the Ministry of Agriculture (MOA) was the only institution providing courses for farmers. Effective follow-up in the field was necessary for these farmer trainees, but the shortage of staff prohibited it. To help solve this problem, as well as to demonstrate basic agricultural knowledge and skill to the rural population, agricultural training mobile units were recommended to be in- cluded in the project during appraisal, though not mentioned in the original Government request. As agreed, the Borrower submitted a detailed plan of imple- mentation of the use of those units, and views were exchanged as set forth in Section 3.08(d) of the Credit Agreement. 4.16 The eight mobile units are vehicles equipped with audio-visual aids and each staffed with an experienced extension agent and driver, who have re- ceived three months of special training arranged by the MOA. The units were to be assigned to four agricultural regions - Western, Lower Juba, Upper Juba, and Benadir. They were distributed in the fall of 1975 to serve seven regions. 1/ In 1974/75 it was changed to the four-year course. - A.16 - In addition to regular demonstration activities in extension, the unit at the MOA serveb.the need of in-service training at the Ministry and will support the Visual Aids Production Center when it starts operation. The units at the three Farmers' Training Centers support teaching at the Centers and help estab- lish linkage between the Centers and farmers. The units based at Dijuma nnd / Jowhar are mainly serving three nomadic settlements located along the Juba and Shebelli Rivers where more than 100,000 nomads have been settled. 4.17 The MOA estimates that when the mobile units are fully operative, about 100,000 of the rural population could be reached annually. At present, they are not fully utilized due mainly to the scarcity of films. A Visual Aids Production Center has been constructed to provide films and media material, but it still lacks the necessary equipment and staff. The MOA has allocated the funds and is taking steps to obtain equipment and staff. Meanwhile, the center borrows films from FAO on a 3-week loan basis. Poor distribution systems in certain regions such as the North West (1,650 km from Mogadiscio) result in poor access to films. Since the unit began operation in November 1975, the Regional Agricultural Office has received only a total of three sets of films which had to be returned after four days. 4.18 Although envisioned as units for the improvement of agricultural skills, the mobile units operate in areas among audiences who need assistance in the treatment of tropical ulcers or in the inoculation of camels. The impact of the mobile units would be much greater if the assistance offered was not solely agri- cultural information. 4.19 In summary, many important historical events have taken olace in Somalia since appraisal in 1970. As a result, the socio-economic setting in 1976 is different from that prevailing in 1970. The project's overall contribution to Somalia's development as originally conceived has turned out to be generally satis- factory. Improvements have been made in primary teacher and agricultural train- ing, and in technical and secondary education. However, the need for primary school teachers projected for the 1970s has turned out to be conservative. This experience underscores difficulty in projecting enrollment if a country undergoes drastic social and political change. B. Provision, Implementation and Evaluation of Curricula 4.20 Teachers for Pre-vocational Subjects and Science Laboratories. The six new subjects and the expansion of three science subjects made possible by the project were: commerce, home economics, and metal, wood, electrical, and agri- cultural workshops, as well as laboratory work in physics, chemistry and biclogy. The latter three were instituted at all 11 project schools; home economics work- shops in nine; commerce, metal, and electrical workshops in three schools; and wood workshops in six. The practical facilities and the corresponding teacher supply are illustrated in Annex IV-5. 4.21 The success of these subjects is contingent upon the provision of teachers with training in the use of the new facilities and their corresponding curricula. The mission found, however, that of all the new facilities, only - A.17 - biology, chemistry and physics facilities were fully staffed. Each science laboratory had a teacher present on the day of the mission's visit to the schools, and each was found to have sufficient training to use the newly arrived equipment. Before the project, teachers of biology, chemistry and physics had already been operating within the school system. The improvement of these subjects was an on-going commitment to the subject matter with labor- atories a logical extension of normal pedagogical routine. When qualified local teachers were scarce, these subjects were given priority with the Govern- ment obtaining expatriate teaching personnel for these subjects. 4.22 As regards pre-vocational subjects, there were problems of supplying qualified instructors. For example, of the two schools operating with metal shops, only one had a teacher at the time of the mission's visit. Three of the five agricultural workshops were without teachers. In home economics, only two of the six workshops had teachers and in woodworking had no teachers at all. 4.23 The lack of teachers is explained by two factors: (i) the competition for skilled manpower from other sections of the Government and the economy, and (ii) the complexities involved in the production of specialized teachers over the last ten years. Teachers of metalwork, woodwork, electricity and commerce were expected to be graduates of the country's technical institutes. However, in electrical skills, the first 29 English-speaking graduates did not sit for their examinations until July, 1975.1/ All were then required to spend a year in the National Service. Of the 29, ten have been recommended for a further two-vear course, and the remaining 19 are expected to be quickly absorbed into one of the private sector industrial shops or into one of the many Governmental enterprises which involves electrical work. Having four years of secondary school electrical training and two years exposure to technical subject pedagogy, the first ten individuals would make ex- cellent candidates for secondary school electrical workshop teachers. However, it is expected that a new Polytechnic (para. 4.13) will open in 1977 and demands will be intense to recruit these teachers. Thus, the first ten fully-trained practical teachers of secondary school electrical subjects cannot be expected until June 1978, and even then, they will have to be shared with the Polytechnic. In addition to the technical institutes, a second source may be found in the graduates of the revolutionary youth camp vocational school, constructed by the German Democratic Republic at Afgoi. But the first ouiput of this new institution is not expected until.June 1977. 4.24 The production of agricultural teachers is ev:en more complex, since there are three institutions which train qualified individuals. Teachers can be solicited through the University's Faculty of Agriculture (UFA), the Agricul- tural Secondary School or the University College of Education. However, the UFA have very few graduates. The first graduates of the Agricultural Secondary School, due in July 1977, will have to be shared competitively with the Ministry of Agriculture, which continues to need new agricultural extension agents for its 1/ An equal number of Italian languag;e graduates also took their examination in July of 1975. After taking a six-month course in English beginning in April 1976, as many as 18 might later be able to join their ten English-speaking colleagues for the two-year pedagogical training. - A.18 - own programs. In the meantime, six students undergoing biology training at the College of Education have been given one or two courses in agriculture, which is expected to meet the immediate need.1/ 4.25 Teachers of secondary school home economics at present have either had only four years of primary schooling and four years training at a Women's Education Center, or primary schooling plus a four-month crash course at the government training camp at Halane (para. 4.11). Fifteen young women who had finished the eighth grade have undergone a crash program which began in August 1975. Three are now teaching at Howl Wadag secondary school. The remaining 12 have all been absorbed by local Women's Education Centers. A new course for home economics will soon open in Mogadiscio which is designed as a one-year program for primary school graduates (6 years), but its first output cannot be expected until June 1977. 4.26 In addition to heavy competition for trained individuals, a second reason for the lack of pre-vocational teachers has been the disruption stemming from the significant educational changes instituted over the past several years (para. 4.10). Three observations seem appropriate on the issue of providing teachers. First, the Government in general made consistent and genuine efforts to abide by the Credit Agreement (Section 4.03) and to supply sufficient teachers in all six of the new pre-vocational specialties. Furthermore, given the overwhelming demands of simultaneously unifying their languages in school, implementing mass literacy, and caring for thousands of drought victims, it is remarkable that the Government was as successful in the training and supplying of teachers as it has been. 4.27 Second, by the end of 1977 Somalia will supply a sufficient number of teachers to fill each category of specialized pre-vocational training at each Bank Group-assisted secondary school. But it is doubtful that these individuals will ever be as qualified as other secondary school teachers. Originally, the intention was to institute pre-vocational subjects on a basis equivalent to other secondary school subjects which included an examination of equivalent standards and weight, and teachers of equivalent stature in training. However, pre-vocational examinations have not yet been prepared and Somalia can only provide pre-vocational teachers by utilizing individuals whose educational training, except in agriculture, is at least 25% less than total formal education and training of teachers of academic subjects. 4.28 Third, even while undergoing a period of social and institutional change, teachers in biology, physics and chemistry can be found in all of the Bank Group-assisted facilities (para. 4.21). Whether this is due to the fact that little or no new training is necessary, or to the willingness of the educational authorities to import expatriate expertise for these subjects in particular, is less important than the fact that the teachers in these subjects were well qualified and were teaching as expected. 1/ Two of the six teachers have been removed from their assignments at the Belet Uen and Burao schools to teach at the 90-day crash primary school teacher training program at Halane; they are scheduled to return to secondary school teaching when the Halane program has been completed. - A. 19 - 4.29 Provision of the New Written Curricula. Effective utilization of new buildings and equipment is not possible without a written plan of action. Its quality is even more crucial when new buildings and equipment are used by teachers of limited training, or when implemented in isolated or impover- ished locations without other intellectual resources. The provision of new curricula for secondary education, technical and commercial education, and elementary and intermediate teacher training was discussed at the time of the project appraisal and agreed upon in the Credit Agreement (Section 3.08, para. b). 4.30 Though the task of writing a curriculum is time-consuming and highly specialized, Somalia has considerable experience. Seven major curricular reforms have been undertaken since 1963 (Annex IV-6); those linked to the project are the most recent, but not the most radical. The depth of Somalia's previous experience may help to explain why the written curricular requirement of the Credit was one of the easier to fulfill. Three categories of new curricula were required, and each will be dealt with in turn. 4.31 Technical and Commercial Curricula were prepared by Unesco experts, timetables, curricula, and syllabi for technical school students were written and approved by the Ministry of Education in 1975. The subjects included for the four-year course are presented in Annex IV-7. In addition to the above, a commercial education expert prepared a curriculum for a two-year typist and storekeeper course at the Hargeisa Technical Institute. 4.32 Secondary Education Curricula: Pre-vocational and Laboratory Sciences. The same technical assistance experts who had prepared the syllabus for students in the technical schools wrote course outlines for pre-vocational students in the general secondary schools, except for home economics. The other syllabi, (woodwork, metalwork, practical electrotechnical, agriculture and commerce) were prepared in 1973 and approved in the same year by the MOE. Providing a home economics curriculum was complicated by the fact that until recently there was no plan agreed upon regarding, inter alia, what previous educa- tion home economics students would have, or how long they could be expected to undergo training. Nevertheless, a curriculum has been prepared for future secondary school students/ and a syllabus exists for a three-month crash course to be given to 26 future teachers in Women's Education (lately referred to as Family Life) Centers. A curriculum is under preparation for the future secondary teachers who will enter their one-year course in the fall of 1976. 4.33 Elementary and Secondary Teacher Training Curriculum. Connected to the assistance of secondary schools was a general recognition of the need for support in teacher training.- At the time of appraisal, the few places in the one teacher training facility had been divided between primary and secondary school training, and it was evident that more of both were needed quickly. Consequently, agreement was reached for the construction of a new laboratory, classroom, boarding and lodging facilities to accommodate new teacher trainees. In addition, the changes envisioned for both primary and secondary school teaching required substantial alterations in the way new teachers were trained, which was the problem addressed in the new curriculum for teacher training. 1/ See Annex IV-8 for time allocations by subject. - A.20 - 4.34 Technical assistance to the Lafole College of Education was pro- vided through Unesco under UNDP project number SOM/71/520. Between the fall of 1972 and fall of 1974, four experts were involved in the following areas: practice teaching, mathematics education, audio-visual education and English language teaching. Two consultants were, for several months, attached to the Curriculum Development Center at the Ministry of Education; one for the purposes of evaluating the educational sector as a system, the other to evaluate the purposes and prospects for curriculum development. Both issued provisional end-of-assignment reports in 1975 which have been used in the development of the Curriculum Development Project proposed for the third education project now under appraisal. 4.35 The provision of teacher training technical assistance under the UNDP project SOM/71/520 was not so successful as the provision of vocational and technical education assistance under the UNDP project SOM/71/519. Even though the Lafole College of Education was recognized to be sorely in need of assistance, some experts left earlier than was anticipated. The comple- tion mission generally found a feeling of ambiguity about the project, but no uniform interpretation as to why. Three explanations were advanced, each from differing sources. 4.36 The first was interpersonal, with dissatisfactions over personal- ities. A second was organizational. The mission was informed that when the Ministry of Culture and Higher Education was separated from the Ministry of Education in 1973 and given responsibility for Unesco assistance to the College of Education, more attention was paid to teacher education than to either curriculum development or examination evaluation. The benefits of these latter two tasks would have accrued principally to primary and second- ary school levels now under the purview of the different Ministry. A third explanation was administrative. It was argued that technical assistance to the College of Education was not as effective as it could have been because individuals provided for the purpose of developing curriculum were utilized primarily to fulfill teaching obligations. 4.37 Although all three explanations probably contain elements of truth, they are insufficient. To understand the problems of technical assistance to the College of Education, the complex chanRes in programs that have occurred since the institution's foundation and during project implementation must be considered. Prior to the project there were five major program alterations; during implementation there were six additional changes, one occurring each year. During one year there were three separate primary school teacher training programs operating simultaneously each with differing intakes and programs. To write or institute a carefully con- structed curriculum in any subject matter is difficult if the training programs are changed yearly. Therefore, irrespective of other difficulties, in the completion mission's opinion, it is of the utmost importance to complete the plans for the proposed primary school teacher training college and to stabilize the training program over the next several years. Only in a context of program stability can technical assistance be utilized to its full potential. - A.21 - 4.38 Reasons for Diversifying Curriculum to Include Pre-Vocational Subjects. There is no clear statement of objectives in the Apprai al Report to justify the investment in new pre-vocational curricula.- Objectives are stated in terms as applicable to village agricultural mobile units as to secondary school domestic science. Some understanding, however, can be reached by taking the objectives listed in the government's original request-/ and matching them to statements made by the Appraisal Report, by the curricula's authors, and by the project's directors. From these sources three distinct, and equal, objectives become evident.-q/ They are as follows: (a) Not to produce skilled or even semi-skilled crafts- men, but to generate vocational interests to be pursued during future leisure time; i.e. for general education (source: government request, curricula authors); (b) The instillation of the attitude that "higher" education is not incompatible with manual occupations in industry, agriculture, or commercial distribution, i.e. the elimination of negative feelings about manual labor and unrealistic expectations for white collar employment (source: government request, project directors); (c) The taking up of occupations which do not require a "purely academic" prepara- tion, i.e. meeting the "demands of the labor market" (source: government request, Appraisal Report). 4.39 For a pre-vocational curriculum to "meet the demands of the labor market," one of three things has to be assumed: (a) secondary school leavers are too numerous for the available salaried employment; (b) pupils with more academic training (but without exposure to pre-vocational curricula) would find it more difficult to adjust to the labor market; and (c) pupils with more pre-vocational (but less academic training) would be more productive economically. 4.40 The Definition of Evaluation. A "summative" evaluation can only be performed after the outcomes of a project can be measured and summarized. This would only be possible long after the end of the closing date of the project, perhaps in five or ten years. A "formative" evaluation has the central purpose of monitoring progress. It poses two questions: whether 1/ The appraisal mission used the term "practical" to refer to courses in commerce, agriculture, industrial arts and home economics. The descriptor implies that other subjects are either not practical or not as practical. The impreciseness and prejudgement implied by the term, force us to drop it. Instead, when we refer to the curricula in woodshop, metal shop, electrical shop, domestic science, and agriculture, we will adopt the term which is used in the official Somalia Government request and by those who are implementing the project: "pre-vocational". When we refer to the extension of science subjects to include laboratory experience, we will use the term "laboratory sciences" (biology, chemistry, and physics). 2/ Ministry of Education and Ministry of Justice and Labour, Education and Training Projects, April 1970, Chapter VI, pages 1-3. 3/ A fourth objective can be found in the official government request, but it is too vague to be assessed. It is as follows: "....to promote among the more highly educated - who will for some time to come remain a minority - a sense of the rightness of the forms which products should take in the conditions of Somalia....". - A.22 - the physical capacity aspects of the investment have been properly accom- plished; and whether or not one can yet distinguish any effect from these investments. In the formative evaluation of the first education project, the first question has already been applied to each of its components: the provision of syllabi, teachers, equipment, buildings, etc., and will now be applied to the second question with particular attention to pre-vocational curricula. 4.41 The investment might already be having some effect despite the fact that the mission collected its information and impressions before all schools were in operation. Many project schools had learned of the planned equipment and facilities as early as five years ago; construction occurred over a period of three or more years; equipment began to arrive in many schools over a year before the mission's visit, and had been utilized, in some cases, for as long as two or three semesters. 4.42 To test whether the project was having any effect, questionnaires were administered in seven project and three non-project general secondary schools. It was intended to collect these data for two purposes: (a) to compare after holding intervening influences in control, whether the pupils in the project schools differentiated themselves from pupils in the schools which had not received Bank Group assistance; and (b) to keep these data for use in the future, because the three non-project schools are part of the second education project and will receive investment over the next four years similar to that of the schools in the first project. These data could, therefore, supply a future evaluation mission and the Government with information which would make it possible to monitor change over time within the same school. 4.43 Curricular Evaluation: Results. Before a discussion of the curri- culum effects, a point should first be raised as to the socio-economic status of the children in the project and non-project schools. In deciding which were to be in the first education project, the Government claimed to have chosen the most isolated and impoverished schools. The data indicate that this has been accomplished, and in dramatic terms. Children in project schools were found to be consistently and significantly lower than those in non-project schools on all measures of socio-economic status: mother's and father's education, father's occupation, possessions in the home and a combination of the four. 4.44 With respect to changing the student prejudice against manual labor, the results are not easily interpretable (ea variablt mumber 14 in Annex IV-9),.!/ No differences in manual labor prejudice as measured by this particular question ever emerge between students in project and non-project schools. This could be the case either because no differences ever existed; or because the curriculum in the project schools has thus far had no effect; or both. 1/ Prejudice against manual labor was measured by asking the students to respond to this question: "If you knew that you would receive more money as a farmer, would you choose to be a farmer, or an office worker?" If offered lower monetary rewards, those who would still choose to be an office worker were considered to possess some prejudice against manual labor. - A.23 - 4.45 Actual performance in the labor market must await a "summative" evaluation, but a prediction of labor market behavior by investigating pupil attitudes toward it can still be attempted. This was done in project and non-project schools by measuring both occupational aspirations (what indivi- duals hope to do) and occupational expectations (knowing the realities of the labor market, what individuals expect they will do). If the pre- vocational curriculum was having any effect thus far, different aspirations and expectations would be found between project and non-project schools; students in schools with pre-vocational curricula would be inclined toward manual occupations and less inclined toward non-manual occupations. 4.46 Indeed, this turns out to be the case. Project school children definitely showed occupational expectations and aspirations in the more manual direction, these differences (displayed as variable number 1 and 2 in Annex IV-9) also being statistically significant at a level which contained less than a .05% probability that the difference could have occurred by chance (p< .05).!/ Furthermore, there is a reason to believe that these attitudinal differences were not a product of selection pro- cesses. Although there were strong and significant differences in socio- economic status between project and non-project populations, neit r aspirations nor expectations are linked to socio-economic status.- 4.47 Before the mission began to collect its information, it was told that there was some difficulty in getting girls to take home economics because they tended to prefer math and laboratory science. This is con- sistent with the mission's findings. Our finding that project school children possess more manual occupational aspirations does not apply to girls. In fact, girls in both project and non-project schools, have significantly more prestigious occupational aspirations than boys (but not expectations) and tended to prefer academic as opposed to pre- vocational subjects.3/ Furthermore, even if they could become more enthusiastic about learning how to cook, sew, and care for children, in most schools there would not be enough girls to justify giving them the option. In the 1975-76 school year, the mission found that in all four grades there were only nine girls at Farah Omar school in Hargeisa, only two at Gardo, and none in Amoud. In no project school did females account for more than 25%, while the average proportion was no more than 13%. 1/ Explanations of how each variable was defined, can be found in Annex IV-9. 2/ This and the fact that a child's self-confidence is completely un- related to his social status is not an uncommon finding among school children in East Africa, for similar findings have been reported from Uganda and Kenya. 3/ Ironically, a significantly larger portion of girls felt that they could benefit from courses in electrical engineering and a significantly larger portion of boys felt they could profit from courses in typing and office skills. - A.24 - 4.48 In addition to manual aspirations and expectations however, students in project schools were distinguishable in at least one other way. When asked how important they thought pre-vocational subjects would be to them later, students in project schools attributed significantly more value to animal husbandry, and slightly more value to agriculture, carpentry, and office skills -- though the differences between means in these latter three subjects were not statistically significant. By con- trast, students in non-project schools tended to place more value on skills of the English language. And if given a choice of one more course to add, students in non-project schools tended to select an academic one; students in project schools, a pre-vocational one. 4.49 Furthermore, from variable 3 one can see that children in project schools differentiated themselves on the item measuring self- confidence. They seem to feel more confident than do children in non-project schools. That this difference might be due to the privi- lege of being in a school receiving the benefits of these investments can be illustrated by a bitter comment found on the back of a student questionnaire from a non-project school. "It is really surprising," it said, "to contemplate the fact that the IDA ignored our very exis- tence for such a time while other schools thrived on their benevolent aid programs." 4.50 In sum, these data would suggest that children in project schools tend significantly toward manual occupational aspirations and expectations, feel that pre-vocational courses will be of more value, and exhibit levels of self-concept substantially higher perhaps by being in schools receiving such investments.l/ 4.51 These are considerable differences. But these pieces of evidence do not complete the discussion, for differences between project and non-project schools cannot be attributed entirely to having been exposed to pre-vocational subjects. Every project school also received new equipment for biology, chemistry and physics, new laboratories, and highly trained science teachers. In addition, attitudinal differences, especially in self-confidence, might be attributable to being in a school with a large amount of new investment, regardless of its in- tention. 1/ Theoretically, teacher quality could vary between one school to the next, and the mission did prepare teacher questionnaires to help test for these differences. But in the field, the mission found that there was no way in which it could ensure participation either because of the ambivalent attitudes towards the question- naires on the part of the expatriates, or because of teacher ab- sences on the day of the school visit. However, it is our impression that if there are any differences in the aggregate quality of teachers, these differences were not divided systematically between project and non-project schools. Therefore, it seems highly improbable that teacher quality could be responsible for any differences along other dimensions discovered between the two categories of schools. - A. z - 4.52 This distinction becomes increasingly evident when one looks at the data on students who have actually taken pre-vocational and science course work, for the impact associated with curriculum differs from subject to subject. The following table displays correlations between the amount of value attributed to a particular subject, and the amount of exposure to it -- measured by the number of semesters of having it as a subject. Correlations Between the Value Attributed to a Particular Subject and the Amount of a Student's Exposure to it (N = 678) Electrical and Auto Mechanical Laboratory Agriculture Commerce Mechanics Engineering Sciences .03 .29*** .15*** .11** .13** ** less than .01% probability of occurring by chance (p< .01) *** less than .001% probability of occurring by chance (p<.001) The strongest relationship seems to emerge from those who have taken com- merce /r = .29 less than a .001% probability of occurring by chance (p<.001/ But significant relationships also appe r in the case of auto mechanics and electrical and mechanical engineering- These three subjects offer market- able skills in acute demand with established linkages to specific jobs and job openings. Thus, it is not surprising to find studends feeling that their usefulness increases the more time they spend in the classroom learning them. 4.53 A significant relationship also appears between exposure to laboratory science and its perceived value, and this relationship emerges despite the fact that few occupational linkages depend directly upon secon- dary school science. On the other hand, all stand out in marked contrast to the random relationship between a student's exposure to agriculture curriculum and the value that is placed upon it. This would indicate that as a pre-vocational subject in a general secondary school, agriculture faces serious problems. Unlike commercial office skills, there are no jobs linked to it. Unlike animal husbandry, from children to nomads, there is prejudice against it. And lastly, unlike its laboratory science rivals, there are as yet no examinations for agriculture, and only a fraction of school time is devoted to its (two hours/week vs nine hours/week) teaching. 4.54 Thirdly, in the students' minds, the other pre-vocational curricula also have no specific job linkages: wood work, metal work and home economics. And, in contrast to the assumption that secondary school leavers would be too many for employment available, every secondary school graduate can at present obtain non-manual employment. In fact, the utility of the secondary school level 1/ For the purposes of matching experience in specific subjects to attitudes about them, students from the three technical schools have been included. - A.26 - literacy and mathematics is in such high demand that students have been drafted for service even before the third year of secondary education. And regardless of the linkage with lower aspirations or expectations, no amount of exposure to pre-vocational curriculum can be expected to channel secondary school graduates into vocational occupations when there is a shortage of secondary school leavers (para. 4.07). 4.55 It is not being suggested that non-job-linked pre-vocational knowledge is not important. All knowledge is valuable, including the learning of basic ideas in wood and metal working, cooking, sewing, nutrition and planting. The question is not the lack of their value, but the comparison with other needed subjects in terms of cost and proof of success. 4.56 The mission found two additional reservations regarding cost; the first in financial terms, the second in academic. The financial cost of pre-vocational curricula is such that the subject must be raised in any discussion of policy. Stoves and refrigerators for home economics, drills and saws for shops, are being placed in schools which are, by comparison, devoid of library books. The introduction of pre-vocational curricula is one of the most capital-intensive curricula choices that can be made for general secondary schools. More than language or math skills, the curricula depends upon a constant flow of material supplies: solder, nails, screws, etc. -- which often have to be imported. None of these can be counted upon in schools outside Mogadiscio and Hargeisa. Choosing pre-vocational curricula therefore can be precarious, for it stands an exaggerated chance of breaking down. 4.57 But financial expense is not the only cost, for there is evi- dence that lower academic performance is associated with pre-vocational curricula./l Variables 12 and 13 present two measures of academic achievement: incoming examination scores and present level of com- petence in three questions on English and mathematics. Though there were no significant differences between students in project schools when entering, there are now significant differences: project schools now perform more poorly. Moreover, this seems to hold true even after controls are placed upon an individual's incoming examination scores, for even after selecting only those children with average scores, present academic per- formance of project school students remains significantly worse. 4.58 Why project schools should exhibit lower academic competence is not easily answered. We know that it not due to differences in socio- economic background, for (as is found elsewhere) among the Somali children in the sample no relationships emerge between a child's socio economic status (SES) 1/ This is not true for students in specialized vocational institutes who have access to teachers of the highest training, the best in equipment, large quantities of external technical assistance, and highly prestigious occupations dependent upon their graudation in technical subjects. - A.27 - and academic performance.1/ Nor is it due to project/non-project differenct- in physical health, sex, age or years in school, for these have been controlled. In addition, we know that children in project schools could not be performing worse because of their en- riched experience with science curriculum for, among boys especially, their achievement increases as they are exposed to more laboratory science. It is not known exactly why project schools perform more poorly. But it is known that after selecting children with the same academic examination scores when they entered project schools, those who have not yet taken a pre-vocational course demonstrate higher academic competence than those who have taken a pre-vocational course. But the difference is not statistically significant. The question is whether, after several more years of implementation and pupils are exposed to pre-vocational options throughout their four years of secondary schooling, the difference will become more pronounced, and those in pre-vocational courses will lag further behind. 4.59 Perhaps the most surprising discovery in evaluating the impact of pre-vocational curricula is how strong the evidence is for linking the status of a child's health with examination performance. The number of past and current health problems reported by each individual has been correlated with performance on the selection examination of the pupils. The resulting coefficient /r = -.289 (p< .001)/ is larger than all other measured influences combined. By comparison, it resembles the strength of the relationship sometimes found in Africa between school performance and intelligence. Whatever the goals of the school may be, it is hard to imagine a more important element in successful implementation than the physical health of the children. 4.60 Several conclusions can be drawn from the above. The goal of altering student prejudice against manual labor through courses like home economics and wood shop may be an unnecessary approach in a society where students are obligated to serve national goals through a National Service Program, and normally do..g/ The goal of guiding students into vocational occupations is not a goal which is appropriate for a level of economic development where individuals with mathematical, scientific and literary skills are fully employed. Even if a "surplus" of these skills did exist, there is no available evi- dence to suggest that wood shop 'would be any more predictive of efficient performance in the vocational market place than would increased exposure to mathematics. Providing new curriculum choices is accompanied by costs, and the costs of pre-vocational curricula are considerable. They include the provision of specialized teacher trainers, and teacher trainees; :the writing of special curricula and new subject matter to be translated into Somali and whose exami- nations need to be updated yearly; specialized, highly expensive equipment and a constant flow of necessary supplies to run it. Fur- thermore, because of time, money and energy being channelled into metal shop and wood shop and home economics, less resources are 1/ The fact that wealthy children do not perform better in school has been established by eight recent studies, two from Uganda, three from Kenya, one (among Africans) in Rhodesia, one from Ghana and one from Papua New Guinea. 2/ Consistent with this statement is the fact of how pleased the Government has been with the level of self-sacrifice and performance of students during the campaign for universal literacy. A far smaller portion left their assignments than was expected, even when working under the most adverse conditions. - A.28 - available for math, language programs and laboratory sciences. Choosing pre-vocational curriculum inevitably involves these trade- offs in student time, and there is some preliminary evidence that cognitive skills might be adversely affected. 4.61 In conclusion, several options and recommendations are offered as to future pre-vocational curricular investment in Somalia's general secondary schools: (a) Pre-vocational effectiveness is dependent upon the degree of its integration with other curricula. This includes teachers, time schedules and exami- nations of comparable quality, as well as the intro- duction of pre-vocational options at each secondary school. Since Somalia is considering the gradual expansion of its secondary school system, this would be an appropriate time to decide whether to invest in generalized pre-vocational options. (b) Goals (b) and (c) in para. 4.38 for pre-vocational curricula seem worthy of close scrutiny. To do this, evidence of two kinds is most needed: (i) tracer information in order to contrast careers of students of comparable quality with and without pre-vocational exposure; and (ii) data for comparing the exact capital and recur- rent costs and long-term benefits of various pre- vocational curricula, laboratory science innova- tions, as well as other pedagogical needs (e.g., textbooks, better food, more teachers, etc.). (c) The evidence collected would confirm the basic intentions of those who first identified and appraised the project: that major new investment into schools is much needed and very useful. It is evident that the new laboratories and equipment, even when not efficiently operated, can be expected to profoundly affect children, especially those in isolated and otherwise intellectually impoverished milieus. (d) The question which remains is not whether to invest more, but rather to decide which kind of knowledge can be proven to be the most useful for the most students and for the nation at the lowest cost. This decision must ultimately be made by the Somalis themselves. Nevertheless, further discussion should include this rule of thumb: that the more specific the skill taught in general secondary schools, the less generalizable will be the out-of-school appli- cability. As an example, the skills acquired in wood shop are more specific to particular jobs (and therefore less widely applicable) than are the skills learned in mathematics. With this in mind, a review - A.29 - of Somalia's present economic needs and resources may confirm what these impressions from the first project have suggested: that the most "practical" of choices may be to lend more support to the most academic of curricula. C. Implementation of Trade Standards, Trade Tests, Technical and Vocational Education Council, and Tracer Systems 4.62 Purpose. Essentially, the four components were designed to ensure: (a) the coordination of widely dispersed and diversified training facilities, personnel and administrations; and (b) the maximization of efficient training through the establishment of a capacity and a precedent for a thorough evaluation of curriculum and other educational investments. A "detailed plan" for each was to have been drawn up by the Borrower and submitted to the Association within two years of the Credit Agreement, i.e., by June 1973 (Section 3.08c of the Credit Agreement). 4.63 Vocational Training. At the time of appraisal, it was proposed that the Bank Group assist in the establishment of a new "National Vocational Training Center," administered by the Ministry of Labor to train and/or upgrade workers in the skills of electricity, carpentry and metal work. During appraisal, this proposal was revised "on cost effec- tiveness grounds" so that vocational training in these skills could be instituted at the two Bank Group-assisted technical institutes..L Vocational courses were to be implemented when technical education classes were not being held in the late afternoons and during vacations. But during much of the project implementation period, the workshops which were to house both vocational and technical classes were being reconstructed to receive the new technical education equipment, and a reluctance emerged on the part of the supervising technical experts to share their scarce work space during the delicate period of installation. The Technical and Vocational Education Council never materialized, and without its assistance far fewer vacation and afternoon vocational education courses occurred than were expected. At appraisal, it was estimated that 800 to 1,000 workers and instructors p.a. could be retrained and upgraded, but the actual number of annual participants since 1973 has been about 100 at most (Annex IV-10). 4.64 Furthermore, the Ministry of Labor and Sports elected to pursue what it had originally suggested to the Bank Group at the time of the appraisal mission: the establishment of a separate and independent worker vocational training institution. This institution has recently been constructed. Thus, little vocational training of workers has occurred, nor is much expected to occur on the same premises as the Bank Group- assisted technical education. 1/ The appraisal report argued: (a) that a separate institution for vocationAl training would be unaffordable in both capital and recurrent costs; (b) that vocational training could be more efficiently performed where specialized equipment and facilities were already located, but that (c) at the projected rate of growth, there would be insufficient economic demand for such specialized training institution graduates. - A.30 - 4.65 Training Standards. With the ultimate goal of upgrading the labor force, training standards were devised to use them as criteria for two immediate tasks: for judging whether vocational training programs in the two Bank-assisted technical institutes had been successful; and for constructing on-the-job trade testing of the employed labor force. Both required the classification of skills among occupations distributed under the auspices of many Ministries, making the complexities of administration all the more reason for the appraisal mission to request that an active Technical and Vocational Training Council be established. The training standards which were devised were never put to use for the first purpose because there were few vocational upgrading courses established, as explained above (para. 4.63). Training standards were devised for 42 trades, however, and utilized extensively for the second purpose of conducting trade testing. 4.66 Trade Testing. Of those who agreed to be trade tested, it was assumed that those who scored worse would have lower salaries, but, be earmarked as candidates for vocational upgrading. The latter was implied by the appraisal report; the former became evident through implementation. Because changes in salary for all workers in Somalia had been awaiting an individual's trade test performance, it is not surprising that extremely high priority was placed upon the quick administration of trade tests. To assist the administration, a directive from Somalia's leadership estab- lished the "National Supervisory Technical Committee," chaired by a repre- sentative of the Ministry of Labor and Sports, and included representatives of the President's Personnel Planning Directorate, Ministries of Health, Agriculture, Livestock, Public Works, Posts and Telegraphs, and the National Electricity Administration. Each representative was responsible for assisting and facilitating the establishment of job performance criteria within their specific fields of authority. 4.67 Since January 1974, 42 job titles have been analyzed. The complete list can be found in Annex IV-tl. P "syllabus" has been written for each title. This includes three descriptions of occupational performance labeled Grades I, II and III. 4.68 Since the individuals being tested were already trained, graded and salaried according to previous perceptions of their experience and competence, the prospect of sitting for these newly created trade tests must have produced considerable anxiety. In all, some 3,000 individuals have been "processed". Of this number, 43% passed in the category of competence they had obtained previously, 34% failed to achieve their presently graded status, 15% failed below even the lowest grade level, and 8% refused to be tested. Of those thought to be in Grade I, 60% passed; in Grade II, 54% passed; and in Grade III, 57% passed. At the time of the mission's visit to Somalia, no results by occupational category had been tabulated. 4.69 Tracer System. Since tracer studies analyze whether manpower objectives have been obtained, and how one mode of training is utilized in contrast to another, it is necessary to follow-up and evaluate the experience of graduates from many kinds of training institutions. - A.31 - Therefore, like trade standards and trade testing, success also would require a viable coordinating committee whose membership could cover all organizations which administer educational institutions. In Somalia, this implies the participation of at least four Ministries: Labor and Sports, Education, Higher Education and Culture, and Agriculture. 4.70 Although implementation of a tracer system was the subject of correspondence on more than one occasion between Bank Group headquarters, RMEA, Somali Government, and UNDP technical assistance representatives, there was little in the way of concrete action. The problem, like that of the Vocational and Technical Education Council, seemed to lie in the fact that competing administrative organizations could not agree upon who would be in control. 4.71 Thus, of the four items, only trade testing is proceeding as planned. Though trade standards have been written, they have not been utilized in coordinating technical or vocational training at any of the technical institutes; tracer studies have not been instituted; and there is no Technical and Vocational Training Council. 4.72 Four conclusions can be drawn: (a) The sharing of equipment and facilities between two or more Ministries can be expected to produce difficulties in the future. (b) A complex and technical innovation such as a tracer system cannot be expected to be implemented without two pre-existing conditions: (i) that there be a local demand for its results and (ii) there be sufficient local talent to utilize the results. Somalia has sufficient local expertise to follow-up students, but there is not sufficient understanding of tracer studies to be able to gauge their usefulness, or to create a demand for them. (c) Political complexities germane to interministerial coordination can be overcome, and two techniques for the future are suggested. Precedent for this first can be found in the example of the committee which facilitated trade testing. It requires that political authority for the coordinating committee be derived from the top. Because trade testing was thought to be essential for the establishment of "fair" salaries, compared to a tracer system, it seemed to receive higher priority. Nevertheless, seeking this kind of authority should be done sparingly, and is genuinely effective only if locally inaugurated. The second technique would require a service of value. Inter-agency cooperation can be achieved when the inter-agency organization can provide something which each member agency can use and would like to have. Information on training effectiveness and attainment of manpower objectives should be a valuable service, and this is the central purpose of establishing a tracer system. - A.32 - (d) Somalia needs individuals with sufficient experience to effectively analyze tracer information. Of the few individuals who can, all are fully committed to other equally crucial tasks. Given the scarcity of human resources, it was too much for the Bank Group to expect that during implementation, Somalia would be able to analyze tracer information without having had any experience and without any general knowledge of its value for planning. Therefore, it is suggested that future efforts at establish- ing a tracer system in Somalia be supported not only with technical assistance, but also with a clear strategy for acquiring inter-organizational cooperation and participation. SOMALIA Project Changes in the Early Stage of the Project Cycle PIM Report Reconnaissance Mission Government Request Appraisal Mission Recommendations Recommendations (prepared with Unpqrn Aar..ne Recoinnendatious Item Cost Item Cost Item 999L Item Cost (US$ million) (US$ million) (uS$ million) (US$ million) National Teacher Education Extension to 10 National Teacher Education Extension to National Center, including curricu- 1.3 secondary schools 1.25 Center, including curricu- 1.01 Teacher Education Center, 0.63 lum development unit and lum development unit and including curriculum printing press Extension to Hargeisa printing press development unit and work- technical institute shop to develop teaching Rural Adult Education, and clerical training Extensions to 11 secondary material including film prodisctions 1.4 center 0.50 schools 2.70 center, 18 rural training Extensions to 11 secondary centers, etc. Conversion of Moga- Extensions to technical schools and re-equipping discio technical Institutes at Hargeisa of one 1.43 Extension of Mogadiscio institute to a tech- and Mogadiscio 1.07 technical institute and 0.8 nician and craft 0.60 Extensions and re-equipping establishment of a crafts- training center A new National Vocational to technical institutes at men training center Training Center 1.14 Hargeisa and Mogadiscio 0.37 A new teacher Extensian of Hargeisa training center 0.70 Architects' fees 0.20 8 Agricultural mobile units 0.16 technical institute and of the clerical training center 0.1 A curriculum devel- Contingencies 0.58 Technical assistance 0.51 opment unit 0.02 Project administration 0.07 A new Mogadiscio technical institute 0.50 Contingencies 0.50 Pre-investment study on rural adult educa- tion 0.05 Tot,1l 3.6 Total 3.62 Total 6.70 Total 3.67 SOMALIA First Education Project - Credit 247.SO COMPLZTION REPORT TEACHING CAPACITY/ENROLLMENT Comparison: (I) Planned Capacity; (II) Actual Capacity and (III) Actual Enrollment - All Project Institutions I Planned Teaching Capacity 11 Actual Capacity-As Built [It Actual Enrollments - Apri 1976 Original lst Revised 2nd Revised % % % % % % Project Item Worksheets Worksheets Worksheets Dif. April 1976 Dif. Dif. April 1976 Dif. Dif. Dif. Oct., 1970 Nov., 1972 April, 1973 Dif. 1 2 3 3/1 4 4/1 4/3 5 5:1 5,/3 5/4 Al College of Education OffEC) 700 700 700 - 1,000 +43 +43 1,000 43 43 - Secondary Schools A2 Amoud 400 320 320 -20 320 -20 - 210 -48 -34 .34 A.3 Burao 340 640 640 +68 640 +88 - 150 -56 -77 -77 A4 P. Omar - Hargeisa 360 480 480 +13 520 +44 - 8 212 -41 -56 -59 AS Hargetsa Girls 240 320 320 +33 480 +100 +50 - A6 Rags L'gas - A ogadiscio 580 640 640 +10 640 +10 - A M uoalim Jams - Mog. 600 640 640 + 7 640 + 7 - - A8 Haal Wadag - Hog. 570 640 640 +12 640 +12 - 700 +23 - 9 + 9 AS Baidoa 340 320 320 - 6 320 - 6 - 210 -38 -34 -34 AIO Belet Uen 360 320 240 -33 320 -11. +33 103 -71 -57 -68 All Gardo 300 320 240 -20 320 + 7 +33 88 -71 -63 -73 Al2 Kismayo 340 320 320 - 6 320 - 6 - 220 -35 -31 -31 Sub-Total Sec. Schools 4,430 4,960 4,800 + 8 5,160 +16 + 8 1,893 -57 -61 -63 TechnicallutL Bl Hargeisa 340 340 340 - 420 +24 +24 331 - 3 - 3 -21 B2 Mogadiscio 320 320 320 - 32p - - 239 -25 -25 -25 Sub-Total Tech. T,oIiLrkle 660 660 660 - 740 +12 +12 570 -17 -17 -23 TOrAL All Projeskjot. 5,790 6.320 6,160 + 6 ( q to +t2 3.463 -40 -44 _ Sn SOLLI. - rirst 1:ducatio, frojuct - CreG-t 247.SO Comparison: (T)Or';ina'ly Estimated and(TI)Artaa! -mp2-mcnt-iion Progrp,s PkkPARATORY WORK - I P_O_E_E D RN A W I 0 . .T LS'S C NSTRU C T 0 N -IIIP. &fURN. PRCCUR0M Strt-in_ cs - CoMpl. Dates star-!ng D..cs tr..~. 5Ues -T = Ljies lompi. ]a tes Stat,ng Dates _comp . ates Project Item aPä nned Actual !lanned Actual Plar.ned Actua. Pl.nncd Actual Planned ;c:ual Planned Act J. Plannet Nctual Pi. ed --:-1 nri*. Name in Brackets1* 1* . Teacher Training Cent )5/74 9/74- Al National Teacher 1 . 241.722.1.721.2.7J 1.1.7oct.72 9.1.72"ug.73 !.1.73 8.13.73.1.74 12.2o74 1.1.73)8/75 7.1.74 1/76 Education Center Secondary Schools A2 Amoud 7.1.72) 3.1.7 ..72) 1:.. 73 4.1 .1.7 1.75 :A3 Sheikh Bashir(Burao) )) fl 1 n : - n A4 Farah Omar) ) o (Hargeisa Boys) ) ) A5 Hargeisa Girls ) ) ) . 3, A Raghe Ugaas 3.1.7. ) 2.1.72) " 1.1.73 .1.74 1.1.74. (Hamar Geb Geb) ) )'9) ))974 .A7 Moalim Jama " )1.1.713 " 4.6.74 j Feb. 73 "1 ) 7 ' .1.76 " ! )619/76 .A8 Howl Wadag ". I) ) ..14.7 ' 8/75 (Hodan) ) ) A9 11 January .1 72) 6.1.73 " ) 7.1.731 7.1.7411.8.75 " " (Baidoa) ) ) AlO Ahmed Warsama .) 15.74 " 7.1.7 " (Belet Uen) ) fl* .All Gardo . 12.1.7. " . .73 6.27.741.1.74 5.1.7 " ;A12 Wamo 7... 6.1.77 73 1.1.74 7.l.74 2.20. A4 (Kismayo) ,Technical Institutes Bl Hargeisa 7-..7r1.1. :7 .74 )Aug. 9 . 1. 72 )Aug. 49.1.75 ")574 9/7 B2 Mogadiscio 3 2.17.2 8.9.7 72 " 3 1.1.73 1.1.741.1.74 :3.10.75 Agricultural Mobile l i I 6/7t Units 2 - - " 6t. 72 M.1. g --.7 i3 Exchange Rate - Original US$1.0b • So.Sh. 7.00 M Current US$1.00 - Sa.-Sh. 6.23 1/ Reflects Liability Period completed l' months later. * Originally planned dates: As scheduled in Annex 15 of Project Appraisal Report (Imp. schedule commencing with date of Credit Agreenent - June 3, 1971). * Not yet completed. ANNEX 11-2 SOMALIA - First Education Project ,Credit 247.SO COMPLETION REPORT Summary Comparison of Total Teaching Premises (I) Originally Required and (II) Actually Provided - At All Eleven Secondary Schools Total Units of Teaching/Training Accommodation (at all eleven Secondary Schools) Teaching/Training I II Accommodation Planned Requirements Units Units (A) (B) Actually At Apraisal Revised March '73 Provided/Built Total New Total New, Total New Units Units Units Units Units Unita Classroom 103 17 99 19 103 27 Commercial Room 4 4 1 1 3 2 Science Lab. 23 12 27 23 27 23 Home Ec. Unit 6 5 10 6 10 7 Metal Workshop 4 .4 3 3 3 3 Wood Workshop 3 3 6 6 6 6 Electrical Workshop - - 3 3 3 3 Agricultural Workshop 6 6 5 4 5 4 Library 12 10 11 5 11 6 (For Admin., Dining facilities, etc. see Annex 2 Tables) Total Student Places at all 11 Schools 4,430 - - 4,800 - 5,160 Places Places Places Total Construction Area of New Facilities at all 11 Schools. - 7,338 - 8,176 10,600 M2 H2 M2 SOMALIA First Education Project - Credit 247.50 COMPLETION REPORT Comparison: Areas of New Construction Work(I)Estimated in Original and Revised Worksheets and(II)Actually Provided/built Gross Areas of New Construction _ Planned/Estimated Actual Difference Original 1st Revised 2nd Revised Areas Actual Project Item Appraisal Worksheets Worksheets as Provision & Worksheets Nov., 1972 April, 1973 Built .Original Estimate IA 1B IC II II/I A M2 M2 M2 M2 % Al Lafole College of Education (NTEC) 3,235 5,985 7,245 7,245 + 124 Secondary Schools A2 Amoud 575 387 415 415 - 28 A3 Sheikh Bashir 688 1,454 930 930 + 35 A4 Farah Omar, Hargeisa 385 744 680 680 + 77 A5 Halane - 162 496 2,705* A6 Raghe Ugaas 763 925 925 925 + 21 A7 Moalim Jama 2,026* 2,002* 2,002* 2,175* + 7 A8 Howl Wadag 864 763 245 245 - 72 A9 11th January 487 688 560 560 + 15 Al0 Ahmed Warsama 487 688 465 445 - 9 All Gardo 500 337 760 760 + 52 A12 Kismayo 563 757 718 760 + 35 Sub-Total Secondary Schools 7,338 8,907 8,176 10,600 + 44 Technical Institutes B1 Hargeisa - 1,130 B2 Mogadiscio -' - - 125 Sub-Total Technical Institutes -1,255 Total - All Project Institutions 10 573 142892 15,421 19,100 + 81 Entirely new schools SOMALIA - First Education Project - Credit 247.SO CC:IPLETI7N _UrAT Comparison: (I)Originally Estimate,d andCII)Actual Costs of All Project Items . ~ ~ ~ ~ ~ f.. . .... ...-.... . ... Ir-...f......... cnn ruction & sitn Dc-."lnt Proce t Ut Opernt initur, And E3m2 hncntie.Arf. ance ýYActWt1 '< -,,kl Er i .te Actua] % r a f.ct3JApr11 Actual c 6 xcluirg, ncluainn; Zxcludi n eIIn udiniri nngcnnCont0% o rnc o t i 1 7 8o W10 117..01 64.9 * 22.30 10T77 7 j4 2"28 72.o A? A,'d 454.64 549..5 501.74 430.71 570.31 44..00 A3 s B sh r 55 7.7 6 ?.2 911,59 327.95 452.43 60.00 455; 1 111.31 941.74 314.56 371.71 61,.24 294.09 341.76 6.9 .65 ' 11 7 1471 9 r fr. -- i 14 0 225.47 262.068.65 - 713.17 1337.å M he Vr* 5:1.95 616.771 13.40 4z5.05 563.67 560.00 225.47 I62.47 2197.84 A7 1*ali,11, 12ý7.47 1485.92 1487.431 647.73 752.72 650.00 10237.20 11 0.44 1137.Z0 Aq wAd.e 5(?. 62 6688. 47 26?.431 620.23 720.56 540.00 195.20' ?Pd. 2137 .43 S3) 471.84 639.891 7.14 351./8 5'0.CO 125.'i 10-9.23 29 A10 %elet U,n 3 03. 0 /7184' 504 .00' 356.25 413.99 490.01. 6 8 62 1239.89 AlI card 403.20 434 911 39.87 464.6 560.00 753.51 85.0 9? Ai Kifany, -4221 . 0 47 3 603.1, 342.76 }9832 539.00 903.01 . 1471 _- f01.46 . 1141.1¶ Su o tal 565.44. 64.10 8592.35 .597.31 14?.45 6^6p.. i62. X) Iar.t.JA. 480.84 568.20 846.44 ' 636.09 739.09 670.00 1115.93 1i07.39 1 Z' møg,«1rtv 240.00 28 .69. 299.7 ' .12 . 143Q,82 1?06.00 11. 17 1524.4- 14.0L -7 - L 1 C .72 u' otal 72C.84 . 851.e0 116,16 1875.09 2179.0- 1884.00 I t-lo c.uti(8) 1108.8) 11T _7j0j2Z.3 4. 6 13.10 561.90 1233.002 2100.00 29135 171.18 23.0 _____ -'-8-5) 1470.00 1603.9 - 0 1 513.10 561.90 1233.00 I 1 12370e, E9532 1b7-',)330 -4157, lý 2304.02ý L' tAAL 9597.2C 11329.00 16218.42 513.10 261.0 1.00 84 8176 9 , - 21 r.b. - exc.nge Rate - Original i 1i31 1.00 .s1,-.5b-. 7C.cO Current i SS 1.00 a 5o.Sh. 6.2) MI SOMALIA - First Education Project A Credit 247-SO A III-2 Comaprison: WOriginal (appraisal) Estimates, (II) Revised Forecasts of Disbursement and(III) Actual Disbursements by Year and Semester -8W0/ D A RMats 1 ( O'tf AVMoA1. MaIlIWMM ISCAL 1t IMIUSAND 0F US 00.AWo I'.U191AL.FPT AS A PFRCP AI. 4aft TZAR ALA R% VZ T S _ AFR REV. :. kV a TOTAL APPRAIRAL 1 2 PST. ET. zsT. IT DISBURSE- FSTHATE 6/30/72 9/30/73 10/31/73 1 2 3 -st---5 .. - 2nd - . S1 ... .. 1973 Lot 13 216 91 - 6 1 . 2nd 10 904 333 *a 21 1974* lit 1I 1,49 1,209 249 * 13 16 60 - 2nd 1,021 2.417 2,01 1.525 * 42 50 A * 1973 Lst 2,09 2,829 2,829 2,631 -- 74 79 . 2nd 2.695 3,143 3,142 3,031 * 86 89 - 1976 LUt 2,924 3,300 3,300. OO30 7 6 .7 .6 31.'7- (3,081)V/ (3.300) - (93) (93) (93) 2nd 3,20 197 7 list 3,300 2nd 1978 lat 2nd MYT I Dc. 3 1 .'7 1/ Disbursement: September 30, 1976; $3,225,696.55 (commitments of 051,059.00 against $22,244.45 subject to cancellation). SOMALIA Ge.,ere] ocondary School Enronmeent School Year Project and Form Code 1971/72 1972173 1973/74 1974/75L 1975/76 1976 (estimate) Number Name of Scho o,in 1 2 3 4 Total 1 2 3 4 Total 1 2 3 4 Total 1 2 3 4 Total 1 2 3 4 Total 1 2 3 4 Total A-2 Amond Amo d Total 126 96 58 76 356 56 74 87 70 287 62 56 83 79 280 - - - 120 120 30 51 62 - 143 70 30 51 62 213 (Female) -- - - - -------- --- 12 12 - - - - A-3 Sheikh Bashir Burao Iotal 84 71 15 - 170 58 67 61 60 246 84 104 79 59 326 - - - 136 136 32 82 111 - 225 80 32 82 Ill 305 (Female) 14 - - - 14 - 5 1 1 711 4 7 1 23 - - 10 10 - 9 3 - 12 A-4 Farah Omaar Harget'a Total 229 268 64 78 639 70 200 225 78 573 - 77 171 151 399 - - - 239 239 31 35 40 - 106 106 31 35 40 212 (Female) 21 - I' 21 3 20 2 - 27 - 5 19 2 26 - - n.a. n.a. - 5 4 - 9 A-5 Halane Hargelsa Total 55 31 32 33 151 34 36 22 27 119 37 26 34 31 128 (Female) 35 22 - 12 69 7 16 17 - 40 9 3 11 11 34 closed closed closed A-6 Raghe Ugaas Hogadiscio 4/ Total 77 198 455 189 919 186 86 198 425 895 -7 64 191 386 641 - - - 436 436 TO be d0molished (Female) 45 40 89 32 206 32 49 57 86 224 - 31 96 134 261 - - - 217 217 A-7 M.alim Jama Mogadiscio Total - - Open from November, 1976 A-8 Howl Wada8 Madiscto Total 189 371 386 - 946 62 170 344 386 962 346 137 - - 483 - - - - - 51 290 134 675 712 51 290 134 1,187 (Female) 89 153 100 - 342 24 81 147 81 333 104 20 - - 124 - - - - - 14 85 20 - 119 A-9 11th January eaido* Total 75 61 - - 136 74 62 47 - 183 120 76 62 42 300 - - - 64 64 29 96 75 - 200 80 29 96 75 280 (Female) 7 4- - 11 8 5 3 - 1611 6 5 3 25 --- 4 4 2 5 6- 13 A-10 Ahmed Warsama Belet Uen 5/ Total 29 - - - 29 46 22 - - 68 56 49 24 - 129 - - - - - - 40 43 - 83 40 - 40 43 123 (Female) 5 - - - 5 6 3 - 9 7 3 3 - 13- *--- -5 6 - 11 A-11 Cardo Gardo 5/ Total 68 - - - 68 38 45 - - 83 46 37 27 - 110 - - - - - 15 41 30 - 86 30 15 41 30 116 (Female) 1 - - - 1 2 1 - 3 - 1 1 - 2- - - ---- 2 - 2 A-12 Wamo Kismayo Total 38 - - - 38 59 40 - - 99 115 60 43 - 218 - - - 36 36 19 85 51 - 155 80 19 85 51 235 (Female) 3 - - - 3 9 4 - - 13 15 8 3 - 26 - - - 3 3 - 12 7 - 19 _1 Except Form 4 atudents, all participated in the literacy campaign. I/ The 1975/76 school year was from July 1975 to February 1976. A regular school year i from November to July. 3/ After 1975/76, another special school year lasting from March 1976 to September 1976 was introduced. 4/ Due to overcrowdedness, those expected to come to the school were transferred to May Secondary School. 5/ Joined in the Form 4 students at other secondary schools. Secondary School Teacher Requirement and Supply Additional Teachers Sali Teachers Aitinal Teschers Required Supplied (College of Available Enrollment Students pr- Tctal Teachers Enrollment Education ;VIAOUV To,achar - ReaujIrd Expension Total % of 6/ % oa A A & RIkR k A k Z L TIFtel D= Total 1970/71 4.2 4.8 20 20 210 240 - - 10 5 - - - 30 122 s8 122 51 1971/72 4.5 5.4 21 20 214 270 4 30 10 6 14 36 37 37 148 69 147 52 1972/73 4.7 7.741 21 20 224 390 10 110 11 9 21 119 37 40 164 73 223 51 1973/74 4.8 7.8- 21 20 228 390 4 10 11 10 15 20 38 40 201 88 266 56 1974/75 5.4 - 21 20 257 - 29 - 12 * 41 - 39 60 226 88 - - 1975/76 6.0 4.8 22 20 277 240 20 (-)150 14 9 34 (-116) 45 70 255 92 232 64 1976 (March-Sept.) * 7.1 - 20 - 360 - 120 - 12 - 132 - - - - 305 85 1976/77 6.6 8.2 22 20 300 410 23 50 15 12 38 62 45 350 285 95 293 72 1977/78 7.3 9.0 23 20 317 450 17 40 16 25 33 65 45 90 317 100 631 (140) 1978/79 7.9 11.5 23 20 343 580 26 130 18 28 64 158 45 400 343 10 696 (120) 1979/80 8.5 16.2 23 20 369 810 26 230 19 43 45 273 45 400 369 100 1,068 (132) 1980/81 9.0 37.0 23 20 391 1,850 22 1,040 20 57 42 1,097 50 400 31 100 1,425 77 1/ A - Figures provided at appraisal. 2/ B - Figures provided at completion. 3/ Nationalization of private secondary schools. 4/ Literacy campaign year. %/ 4 p.a. 6/ After 1976/77, only qualified Somali teachers are added to the pool of Somali teachere available. SOMALIA Primary School Teacher Requirement and Supply Total Qualified Additional Teachers Required Additional Teachers Supplied Teachees Available Enrollment Students per Total Teachers Enrollment 3/ College of Primary Teacher (000) Teacher Required Expansion Wastage Total Education Training College Total % of % of 5/ A B A B A B A B A B A B B A B A jbtal B Total- 1970/71 39.9 50.4 30 30 1,330 1,680 - - 14 50 - - 45* 45* - 45 45 826 62 1,0004 60 1971/72 41.3 59.9 31 31 1,353 1,940 23 260 15 50 38 310 45* 50* - 45 50 870 64 1,000 51 1972/73 43.0 78.1 31 32 1,379 2,440 26 500 16 50 42 550 45* 50* - 45 50 932 68 1,000 43 1973/74 45.1 96.9 31 34 1,439 2,850 60 410 16 50 76 460 45* 50* - 45 50 1,010 70 1,000 35 1974/75 47.8 - 31 - 1,519 - 80 - 18 - 98 - 35 250 - 35 250 1,107 73 - - 1975/76 51.1 219.6 32 40 1,615 5,490 96 2,640 19 150 115 2,790 155 330 1,500* 155 1,830 1,236 77 2,980 54 1976/77 56.3 279.1 33 37 1,708 7,540 93 2,050 20 290 113 2,340 170 - 3,000* 170 3,000 1,351 79 5,830 77 1977/78 62.9 343.7 34 36 1,863 9,550 155 2,010 21 400 176 2,410 180 - 2,500* 180 2,500 1,496 80 8,040 84 1978/79 70.4 374.1 35 35 2,007 10,690 144 1,140 23 480 167 1,620 183 - 2,000* 183 2,000 1,653 82 9,600 90 1979/80 78.3 394.4 35 35 2,190 11,270 183 580 26 530 209 1,110 183 - 1,500* 183 1,500 1,814 83 10,620 94 1980/81 85.6 394.7 36 33 2,365 11,960 175 690 28 540 203 1,230 185 - 800 185 800 1,967 83 10,890 91 * From a crash program. 1/ A - Figures provided at appraisal. Enrollsents at private schools were excluded. 2/ B - Figures provided at completion. As all private schools were nationalized in 1972, enrollments at schools which were private at appraisal are also included. 3/ 5% p.a. 4/ Estimate. 5/ The rest of required teachera are filled by unqualified teachers and the National Service Volunteers (NSV). NSV were introduced in 1972/73 and are expected to be mobilized as teachers until 1978/79. This number varies from 700 to 1,250 p.a. Source: Ministry of Education and Bank Staff Estimates. SOMALIA Enrollment in Mogadiscio Technical Institute, Hargeisa Technical Institute, and the Primary Teacher Training at the Lafole College of Education 1971/72 1972/73 1973/74 1974/75 1975/1 MTI HTI HTIcI/Lafole MTI HTI HTIc Lafole MTI HTI HTIc Lafole MTI HTI HTIc Lafole MTI HTI HTIc Lafole Form 1 63 75 70 - 2/ 110 37 40 250 106 60 77 334 71 70 70 -4/ 305/ 605' 601- - 2 50 28 30 - 134 70 60 - 96 39 37 -3/ 63 60 77 584 85 62 54 - 3 14 32 - - 47 27 - - 124 59 - - 91 39 - - 54 64 - - 4 47-- - 42 - - - 41 - - - 108 - - - 96 - - - Total 174 135 100 - 333 134 100 250 367 158 114 334 333 169 147 584 265 186 114 - 1/ Two-year course of the Commercial Section at HTI. 2/ No enrollment in primary teacher training program. 3/ Those who finished the first year in 1972/73 went one-year teaching service and returned in 1974/75 to be enrolled in the second year. This practice stopped in 1973/74. 4/ No intake in Lafole College of Education. Instead a crash primary teacher training program started at Eiljalle in 1974/75 (1,500 students) and then moved to Halane in 1975/76 (3,000 students). 5/ New students entered in Form 1 in March 1976 instead of a regular month November. z ANNEX IV-5 Practical Facilities and the Presence of Practical Teachers in Pro-ject Schools Ar 0y U0 0 Pw 0 0 a.. CO WA H a 0 U 4F A6 Rgh gas (o.)zz z z2~ A8 4owl ad ( o . y x - y1 0W 0 0 0 9 1 0 1-4 Ji y y - Pq4 Q. A A2 Amoud (Borama) y y y y y A3 Sheikh Bashir (Burao) y y x y y y A Farah Omar (Hargeisa) y x x y y y A5 Halane First July (Hargeisa) n s f a Z A6 Raghe Ugaasa (Mog.) z z z z z z A7 Moalim Jama a(,,,10.) z z z z z z z A8 Howl Wadag (Mog.) y x Y Y A9 l1th January (Baidoa) x x y y y y A10 Abme Warsama (B3elet Uen) X X 3y y All Gardo b - - - - - - - - - A12 Kismayo X y y y' y a These three schools contained no students; for an explanation, see paras. 5.03 and 5.04. bGardo was the only school not visited by the mission. According to our most recent information, extensions were to provide for two new science laboratories, one home economics, one metal, and one woodshop (Annex V-2, Table K). x = New facility and equipment present but not staffed. y = Facility, equipment and staff present. z = Facility present, but neither staff nor students. ANNEX IV-6 Curricula Changes at the Primary and Secondary Levels Year Level Change 1) 1963 primary Structural shift from 5-3-4 in the ex-Italian region and 3-4-4 in the ex-British region to a unified 4-4-4 system overall. Curriculum and teaching altered to meet the new time requirements. 2) 1967 primary Integrated syllabus and examinations for all Somali schools for the first time. 3) 1971 primary Science curriculum rewritten to implement the "integrative systems approach" learned at a UNESCO sponsored conference at the University of Ibadan.1/ 4) 1971 secondary All secondary school curriculum and exams unified between regions and administered in English. 5) 1973 primary Subjects of fishing, agriculture, animal husbandry, and poultry farming included.l 6) 1973-75 secondary - Science subjects rewritten to include the use of the new IDA financed laboratory equipment. - New curricula written for pre-vocation subjects. - Translation into Somali begun for all curricula. - Translation into Somali begun for all textbooks in all subjects. 7) 1974 primary - All curriculum revised again to conform to the new time structure 6-4 involving two years less primary education. - Above curricula implemented entirely in Somali. 1/ The "integrative systems approach" takes a subject of importance such as water, and teaches facts about it -- crossing traditional disciplines such as biology and chemistry at-will. 2/ Schools were allowed to specialize in one of these four subjects. A question on two from each was included on the examination at the end of primary school and each student was required to answer at least one. These new curricula did not include new supplies or teaching aids; teachers were expected to use whatever materials could be found in or around the school. ANNEX IV-7 Subjects for Four-Year CourseAin-Technical Education- Subjects Years English language (technical) 1, 2, 3, 4 Mathematics 1, 2, 3 (4th year will be applied in special technical subjects) Physics 1, 2 Chemistry 1 Technical drawing 1, 2 (further studies in technical drawing are incorporated in special technical subjects) Applied electricity 2, 3 (for students in mechanical and auto engineering only) Applied mechanics 2, 3 (for students in electrical engineering only) Workshop management 4 Workshop technology all first year students Mechanical, automotive and electrical engineering (theory and lab and workshop practice) 2, 3, 4 Building materials 2, 3, 4 (building and civil engineering students only) Building science 2, 3, 4 (building and civil engineering students only) Building construction 2, 3, 4 (building and civil engineering students only) Surveying 3, 4 (building and civil engineering students only) 1/ The syllabi for English language, Mathematics, Physics, Chemistry, Technical Drawing, Applied Electricity Workshop Management and Workshop Technology (1st year) will be applicable to the course in Civil and Building Engineering at Hargeisa Technical Institute. ANNEX IV-8 Curriculum Time Allocations For Secondary Schools Subject Hours/Week Mathematics 6 English Language 5 Arabic Language and Religion 4 History 3 Geography 3 Physics 3 Chemistry 3 Biology 3 Somali Language 2 Revolutionary Education 2 ProductionL/ 2 1/ Production includes all pre-vocational subjects which vary between schools according to which facilities, equipment and trained teachers are available. ANNEX IV-9 Comparison of Project and Non-Project Secondary Schools (N = 678) Project Non-Project Degree of School School Student Sample Statistical Means Means Range Deviation Mean Significance 1. Manual vs non-manual occupational aspirations 4.53 4.70 5 .89 4.58 .05 2. Manual vs non-manual occupational aspirations 4.18 4.40 5 1.16 4.25 .05 3. Self-concept 1.85 1.67 2 .41 1.79 .001 4. Socio-economic status 13.03 15.51 37 8.69 13.79 .01 5. More pre-vocational or academic subjects 1.39 1.53 2 .49 1.43 .01 6. Value of English language skills 1.30 1.42 3 .55 1.38 .05 7. Value of animal husbandry 1.88 1.73 3 .72 1.77 .05 8. Value of agriculture 1.48 1.40 3 .60 1.42 N.S. 9. Value of carpentry 2.16 2.03 3 .71 2.07 N.S. 10. Value of science 1.38 1.35 3 .52 1.36 N.S. 11. Value of typing & other office skills 2.16 2.03 3 .71 2.07 N.S. 12. Incoming examination scores 71.7 70.5 100 11.34 71.31 N.S. 13. Present academic achievement 1.34 1.59 4 .79 1.41 .005 14. Prejudice against manual labor 1.42 1.42 2 .49 1.42 N.S. 15. Amount of health problems 2.29 2.38 12 1.62 2.32 N.S. ANNEX IV-10 Page 1 of 2 Training Activities for Technical Teachers and Skilled Workers Number of Activity Duration Date Participants - Up-grading course for Teachers in Commercial Sept.-Oct. Education (HTI) 6 weeks 1973 2 - Seminar for Technical Subjects Teachers (MTI) 10 days Oct. 1973 14 - Seminar for Vocational Training Instructors (MTI) 2 weeks Nov. 1973 24 - Seminar for Vocational Training Instructors (HTI) 2 weeks March 1974 18 - Course on Agricultural subjects to the students Jan.-June of College of Education 6 months 1974 11 - Seminar for Technical & July-Oct. Vocational Instructors (MTI) 12 weeks 1974 61 - In-service training course for Technical teachers (MTI one aca- Nov. 1974- and HTI) demic year June 1975 33 - In-service training course for teachers of Agriculture for General Secondary 2 + 3 March and Schools (ASA) weeks July 1975 10 - Training course for teachers of commercial subjects in July-Oct. secondary schools (Mogadiscio) 15 weeks 1975 7 - Summer seminar for technical Aug.-Oct. teachers (MTI) 10 weeks 1975 34 ANNEX IV-10 Page 2 of 2 Number of Activity Duration Date Participants - In-service training course for bricklayers (HTI) 12 weeks July-Oct. 21 1975 - Summer seminar for College of Education trained to be teachers of pre-technical education in secondary schools (MTI) 10 weeks Aug.-Oct. 10 1975 - In-service training course for workers in carpentry/ joiners (HTI) 12 weeks Nov. 1975- 15 Jan. 1976 - Training course for teachers in building, electrical, mechanical, and automotive engineering (MTI, HTI) 6 months March-Aug. 50 1976 ANWEX IV-11 Page 1 of 2 Occupations For Which National Skill Standards Have Been Developed Serial No. Trades Grades Remarks 1. Automobile Electrician III II I 2. Agricultural Mechanic x x x 3. Blacksmith x x x 4. Driver Mechanic x - - 5. General Electrician x x x 6. Motor Mechanic (Petrol & Diessel) x x x 7. Injection Pump Operator x x - 8. Fitter (General & Steam) x x x 9. Brick/BLock-Layers, Stone Masons, Tile Setting-Plastering x x x 10. Carpentry - Joinery x x x 11. Painters (House Painting, Sign Writing) x x x 12. Carpentery - Boat Making x x x 13. Refrigeration & Air Conditioning x x x 14. Metal Working Machine Setter Operator (Metal Machinist) x x x 15. Welding (Gas & Arc) x x x 16. Sheet Metal Worker x x x 17. Spray Paining x x x 18. Turner (Lather Setter Operator) 19. Cabinet & Furniture Maker x x x All workers in this group are classified as carpenters & joiners. ANNEX IV-;1 Page 2 of 2 Serial No. Trades Grades Remarks 20. Telecommunication (Fitters & Mechanics) x x x 21. Diessel Power Station Operator x - - 22. Plumber & Pipe Fitter x x x 23. Mechanic Locomotive x x - 24. Mechanic Motor Cycles x - - 25. Panel Beater x x x 26. Plant Operation (Oxygen Making) x x - 27. Auxilliary Nurse x x x 28. Health Auxilliary Midwifery x x x 29. Health Auxilliary Laboratory (General Anti-Malana) x x x 30. Health Auxilliary Pharmacy x x x Work in progress. 31. Health Nurse Operation Theatre - x x Syllabus not yet approved. 32. Livestock Health Assistant x x x Syllabi approved. 33. Livestock Laboratory Assistant x x x Syllabi approved. 34. Forestry Workers x x x Work in progress. 35. Range Workers x x x Work in progress. 36. Sugar Processing (Laboratory Workers) x x x 37. Boiler Practice x x x 38. Turbine Operator x - - 39. Sugar Farm Worker (Cane Cutting/ Planting, Etc.) x x x 40. Sugar Processing Equipment Operator x x x 41. Distillery Operators (Alcohol) x x x 42. Tiles Installor III Syllabuse not yet approved. Process of Reducing the Primary Cycle From 8 to 6 Years Through the Literacy Campaign and the Introduction of New Curriculum 1973/74 General Secondary Educa- (Nov.-July) 1/- /II/ f i /i IV/ /V/ V/ /I /VIIIi L tion (A) echnical, Vocational and Teacher Training (B) 1974/75Employment (C) 1974/75- (Aug.-July) Literacy campaign participation except those in grade VIII in 1973/74 About 50% proceeded to B programs which were not closed during the campaign 1975 (April-Nov.) IVI/ /VlI/ /VIII/ 1975/76 I 2 (July-July) /1/ /2 1 /- 1976 (Jan.-Sept.) /VII/ /VIII/ ___E A 1976/77\\\\ (Nov.-July) /1/ /2/ 131 /6/ /5/ vIII C 1977/78 A (Nov.-July) /1/ 1/B 1/ /4/ // / C A B 1/ Divided into 2 groups by the examination. E C / Following new curriculum. 3/ Joined in November 1975. 4/ Joined in March 1976.