Morocco - Second Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 4545 PROJECT PERFORMANCE AUDIT REPORT MOROCCO SECOND EDUCATION PROJECT (CREDIT 266-MOR) June 14, 1983 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 GLOSSARY LycAe: Junior and senior secondary school (Grades 7-12) offering after grade 10 specialized streams in Arabic, Humanities, Mathematics and Sciences (General Lyc6es) or in Industrial Arts, Mathe- matics, Commerce and Economics (Technical Lycdes). Baccalaurgat: Diploma or award given students upon completing senior secondary courses and required examinations. Normally qualifies for entry into university. Original Education: Schools with a curriculum based on Koranic studies. Centre P9dagogique Regional Teacher Training Colleges. These colleges Regional (CPR): train teachers for junior secondary schools (Grades 7-9). Ecole Normale Higher Teacher Training College. This college trains Supfrieure (ENS): post-graduate teachers for senior secondary schools (Grades 10-12). This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  PROJECT PERFORMANCE AUDIT REPORT MOROCCO SECOND EDUCATION PROJECT (CREDIT 266-MOR) TABLE OF CONTENTS Page No. Preface .......................................................... i Basic Data Sheet ........................................................ ii Highlights .............................................................. v PROJECT PERFORMANCE AUDIT MEMORANDUM I. PROJECT BACKGROUND AND SUMMARY .................. 1 II. PRINCIPAL ISSUES ...................................... 2 Project Content....................................... 2 Ineffective Project Implementation Arrangements....... 3 The Higher Teacher Training College (Ecole Normale Superieure - ENS) ......................... 4 Physical Implementation ............................ 5 IDA Supervision ...................................... 6 III. EDUCATIONAL IMPACT ................................... 7 National Institute of Pedagogy (IPN) ................. 7 Higher Teacher Training College (ENS) ................ 7 Regional Teacher Training Centers (CPRs) ............. 8 Science Laboratories in Senior Secondary Schools ..... 9 Teacher Training in Industrial and Commercial Subjects in Senior Secondary Schools ................ 9 The Royal School of Forestry-Sale .................... 9 IV. CONCLUSIONS ....................................... 10 PROJECT COMPLETION REPORT Foreword ........................................................ 13 Summary ............................................................... 14 I. Project Origin and Content ................................. 17 II. Project Implementation...................................... 19 TABLE OF CONTENTS (Continued) Page No. III. Educational Results ....................... 29 A. Teacher Training and Research ..................... 29 B. Science in Senior Secondary Schools ............... 32 C. Technical Training - Industrial and Commercial Subjects in Senior Secondary Schools .............. 33 IV. Conclusions and Recommendations......................... 34 List of Tables 1. Project Content ........................................ 37 2. Project Implementation Schedule .................. .. 39 3. Project Costs - Phase 1 (in DH)......................... 40 4. Project Costs (in DH) .................................. 41 5. ENS - Number of Periods per Subjects and by School Phases .......................................... 42 6. Planned and Actual Enrollment in Project CPR Institutions by Type of Program ........................ 43 7a. CPR - Educational Sheet and Facilities - Fes-Saiss ..... 44 7b. CPR - Educational Sheet and Facilities - Kenitra ....... 45 7c. CPR - Educational Sheet and Facilities - Marrakech ..... 46 7d. CPR - Educational Sheet and Facilities - Meknes ........ 47 7e. CPR - Educational Sheet and Facilities - Oujda ......... 48 7f. CPR - Educational Sheet and Facilities - Tanger ........ 49 8. Summary by Specialization of Enrollment and Graduates for all the CPRs and the Project CPRs, 1978/79 50 9. Comparison by Specialization between expected Enrollment and Graduates and 1978/79 Enrollment and Graduates (in %) (CPRs) ........................... 51 10. Number of Graduates of all the CPRs and of the Project CPR 1971-1979 and 1979, by Specialization .............. 52 11. Teachers Assigned to the Project CPRs by Specialization 1978/79 ............................................... 53 12. Funds Allocated to the Regional Teacher Training Centers, 1979 (in Dirhams) ............................ 54 13. Average Amount Allocated by CPR Student from 1973/74 to 1978/79 ............................................. 55 14. Enrollment for "Technician" Training, 1978/79 . 56 15. Enrollment for Technical Senior Secondary Training, 1978/79 ................................................ 57 16. Number of Pupils by Specialization and by Grade, 1978/79 (Technical Senior Secondary) ................... B Annexes I. Organizational Chart of Ministry of Primary and Secondary Education .................................. 59 II. Planning Organization Chart .......................... 60 III. Organizational Chart of Secondary Ministry of Primary and Secondary Education ...................... 61 IV. Senior Secondary Technical Education Industrial, Commercial and Economics ............................. 62 PROJECT PERFORMANCE AUDIT REPORT MOROCCO SECOND EDUCATION PROJECT (CREDIT 266-MOR) PREFACE This is a performance audit of the Second Education Project in Morocco, for which Credit 266-MOR was approved in July 1971 in the sum of US$8.54 million. The original Closing Date was April 30, 1976; the Credit was fully disbursed and the Credit account closed on February 24, 1978. The audit report comprises (a) a Project Performance Audit Memoran- dum (PPAM) prepared by the Operations Evaluation Department and (b) a Project Completion Report (PCR) dated June 1982 prepared by the Europe, Middle East and North Africa Regional Office and based on a draft PCR which had been prepared by a UNESCO mission which visited Morocco in October/November 1979. The PPAM, in connection with which no field visit was undertaken, is based on a study of the PCR and other material in the Association's files relating to this project, including the Appraisal Report (PE-29a) dated July 6, 1971, the President's Report (P-977) dated July 8, 1971, the record of the Board discus- sion of this project on July 20, 1971, and the Development Credit Agreement (266-MOR) dated August 18, 1971. The project experience has been discussed with IDA staff associated with the project. As is customary in the preparation of audit reports, copies of the draft audit report--in a French translation--were sent to the representatives of the Borrower; this was done on December 30, 1982. No reply has been received from the Borrower. The original PCR was revised following audit comment. The audit memorandum examines more critically than the PCR certain aspects of the project experience, including project content, the implementation arrangements for certain project components, and IDA supervision. The examination of these aspects has relevance to future projects in the sector.  - ii - PROJECT PERFORMANCE AUDIT BASIC DATA SHEET MOROCCO SECOND EDUCATION PROJECT (CREDIT 266-MOR) KEY PROJECT DATA Item Appraisal Actual or Expectation Current Estimate Total Project Cost (US$ million) 13.5 35.6/a Overrun (%) - 164/a Credit Amount (US$ million) 8.5 8.5 Disbursed - 8.5 Cancelled - - Repaid (to January 1, 1983) 0.13 Outstanding - 8.37 Date Physical Components Completed 12/74 2/78 - in months since Credit Signature 40 78 Proportion Completed by Above Date (%) 100 100 Proportion of Time Overrun (%)- 95 Institutional Performance Good Satisfactory Cumulative Estimated and Actual Disbursements (US$ million) CY 1972 1973 1974 1975 1976 1977 1978 i. Appraisal Estimate 0.21 2.36 6.68 7.90 8.50 8.50 8.50 ii. Actual - 0.00 0.06 0.67 5.17 8.45 8.50 iii. Actual as % of Appraisal Estimate - 0 1 8 67 99 100 OTHER PROJECT DATA Original Actual or Plan Revisions Estimated Actual First Mention in Files 12/23/68 Government's Application 10/24/70 Negotiations 06/11-16/71 Board Approval 07/20/71 Date of Credit Agreement 08/18/71 Credit Effectiveness 11/18/71 12/20/71 12/10/71 Closing Date 04/30/76 04/30/78, 01/31/79 02/24/78 Borrower Kingdom of Morocco Executing Agency Project Unit, Ministry of Education; Ministry of Agriculture Staff Fiscal Year of Borrower January 1 - December 31 Follow-on Projects Names Third Education Fourth Education Fifth Education Project Project Project Loan No. 1220-T-MOR 1681-MOR 2149-MOR Amount (US$ million) 25.0 113.0 50.0 Date of Loan Agreement 3/18/19 76 4/2 5/19 79 11/05/1982 /a From the PCR-  - iii - MISSION DATA Sent Month/ No. of No. of Staff- Date of Mission by Year Weeks Persons* Weeks** Report Reconnaissance Bank Group/ 01/69 1 3 (A,B,C) 3 02/03/69 FA0 Reconnaissance Bank Group 11/69 1 1 (B) 1 12/09/69 Identification UNESCO/WHO 11-12/69 3 6 (B,C,2D,E,F) 12 Mar.1970 Reconnaissance Bank Group/ 07/70 1 3 (B,C,D) 3 08/06/70 UNESCO Preparation UNESCO 10/70 3 6 (A,B,C,D,E,F) 16 10/21/70 Appraisal Bank Group/ 11-12/70 3 7 (A,B,C,D,E, FAQ F,G) 21 07/06/71 Pre-Negotiation Bank Group 04/71 1 2 (2B) 1 04/27/71 Total 57 Supervision I IDA 11-12/71 1.5 1 (A) 0.7 03/10/72 Supervision II IDA/UNESCO 03-04/72 4 3 (2A,D) 6.0 05/09/72 Supervision III IDA 09/72 1 1 (A,B,D) 1.5 10/06/72 Supervision IV IDA 03/73 1 1 (A) 0.5 06/26/73 Supervision V IDA 12/73 1.5 1 (A) 0.8 01/29/74 Supervision VI IDA 10/74 1.5 1 (A) 0.7 11/04/74 Supervision VII IDA 04/75 3 2 (A,D) 1.0 06/13/75 Supervision VIII IDA 07/75 1 1 (A) 0.2 08/08/75 (Memo) Supervision IX IDA 11-12/75 2.5 2 (A,D) 1.0 01/12/76 Supervision X IDA 04/76 2 1 (A) 1.0 05/10/76 Supervision XI IDA 10/76 2 2 (A,D) 1.0 12/14/76 Supervision XII IDA 02-03/78 3.5 1 (A) 0.5 03/10/78 Supervision XIII IDA 11/78 2 1 (A) 0.5 12/12/78 Total 15.4 Completion UNESCO 10-11/79 2.5 3 (A,D,E) 7.5 03/26/80 (first version) * A = Architect; B = Economist; C = Agricultural Educator; D = General Educator; E = Technical Educator; F = Medical Educator; G = Veterinary Educator. ** Estimated number of staff-weeks attributable to this project. * All supervision missions also worked on other projects.  - iv - COUNTRY EXCHANGE RATES Name of Currency (Abbreviation) Dirham (DH) Exchange Rates: Appraisal Year (1971) US$1 = DH5 Intervening Years US$1 = DH3.71 ALLOCATION OF CREDIT PROCEEDS (US$) Original Revised Actual Category Allocation Allocation Disbursement (06/27/73) (02/24/78) I. Furniture and Equipment 4,000,000 3,400,000 4,327,655.96 II. Services (a) Civil Works 3,550,000 3,240,000 3,597,890.47 (b) Consultant Architects 350,000 320,000 490,916.42 (c) Services of one Architect and one Specialist in equipment for the Project Unit, and of the Architect required for Part II (c) of the Project 100,000 100,000 83,537.15 III. Unallocated 500,000 1,440,000 Not applicable Total $8,500,000 $8,500,000 $8,500,000.00  - v - PROJECT PERFORMANCE AUDIT REPORT MOROCCO SECOND EDUCATION PROJECT (CREDIT 266-MOR) HIGHLIGHTS A Credit of US$8.5 million to assist in financing the Second Education Project in Morocco was approved in July 1971 and signed in August 1971. Total project costs were estimated at US$13.5 million equivalent. The project aimed at assisting the development of secondary and higher education in accordance with identified priority needs. It comprised building and equipping a national pedagogical institute, teacher training colleges, science facilities for secondary schools, vocational training centers, and extensions to existing veterinary and forestry schools, together with equipment for technical and commercial secondary schools. Early in project implementation it was agreed that credit funds would not be used to finance the vocational schools and a department of veterinary medicine. The project has been completed, and the credit funds had been disbursed by February 24, 1978. The project made a very significant contribution to the Government's objective of increasing the proportion of local staff in the secondary school teaching force; in 1979-80 all lower secondary school teachers were Moroccans (PCR, para. 3.12). In particular, the project led to the creation of some excellent pedagogical programs and a highly qualified staff of secondary level teacher trainers. The project took almost twice as long to complete as had been expected and cost over $35 million, a cost overrun of over 160% (due in part to dollar devaluation during implementation). The cost overrun was met by the Borrower. The project was complex, and the project experience mixed. This audit report gives no information on the three project institutions which were ultimately not financed under the Credit. However, the audit records that the Forestry School has been completed satisfactorily and is being well utilized (PPAM, para. 26). The National Institute of Pedagogy is slowly moving towards fulfilling its original objectives after rather a disappointing start (PPAM, para. 18). The future of the teacher training programs in the Higher Teacher Training College is uncertain following the change of the College into a university faculty of education but it is likely that the programs will be preserved (PPAM, paras. 19 and 20). The quality of the work done in the project Regional Teacher Training Centers has been adversely affected by the sharp decrease in recurrent funding and the shortening of the courses offered (PPAM, paras. 21 and 22). The project science laboratories are underutilized for practical science experiments because of a shortage of staff, and are poorly maintained (PPAM, para. 24). Another point of special interest is the inadequate attention paid to educational objectives by IDA supervision missions, which concentrated on architectural aspects (PPAM, paras. 16 and 17).  - 1 - PROJECT PERFORMANCE AUDIT MEMORANDUM MOROCCO SECOND EDUCATION PROJECT (CREDIT 266-MOR) I. PROJECT BACKGROUND AND SUMMARY 1. In early 1969 an IDA/FAO mission reported that the Government had made little progress in preparing this project despite previous understand- ings, and it was decided not to proceed with a project request received from the Government in June 1969 because the proposed project was insufficiently focussed. It was decided that UNESCO field a major project identification mission, which visited Morocco in late 1969. This was followed by a further Bank Group reconnaissance mission in July 1970, and a UNESCO project prepara- tion mission in October 1970. Appraisal followed rapidly, in late 1970, and after a further mission to Morocco the Credit was negotiated in June 1971, signed in August 1971, and made effective in December 1971. 2. The project aimed at assisting in the development of secondary and higher education in accordance with identified priority needs and comprised: (a) construction and equipment of a National Institute of Pedagogy, a Higher Teacher Training College (enrollment 300, all board- ing) and six Regional Teacher Training Colleges (total enroll- ment 4,320, of whom 3,000 boarding); (b) construction and equipment of science facilities for six existing general secondary schools, total enrollment 9,100; (c) additional equipment for ten existing technical secondary schools (total enrollment 2,400) and thirteen existing commer- cial secondary schools (total enrollment 3,400); (d) construction of and equipment for two vocational training centers (total enrollment 198); (e) extension of and equipment for the Institute of Agronomy to form a Department of Veterinary Medicine (enrollment 160); (f) extension of the Royal School of Forestry (enrollment to increase from 50 to 130); and (g) technical assistance for project implementation. 3. Project implementation in respect of the elements (a), (b) and (c) above was to be handled by the Project Unit established in the Ministry of Education to implement the First Education Project, suitably strengthened. The vocational training centers component under (d) was to be implemented - 2 - under the supervision of a permanent official in the Ministry of Labour, assisted by "qualified and experienced architects, experts for educational equipment and accountants." In a similar way, a permanent official in the Ministry of Agriculture was to be responsible for the implementation of the components mentioned under (e) and (f) above. 4. The project has been completed with certain changes in its financing arrangements: comparatively early in project implementation, in mid-1972, IDA indicated that it was not prepared to finance the two vocational training centers because misprocurement had occurred; whether the Credit sum would be affected was left in suspense. In February 1973 the Government indicated that following IDA procedures would so delay the construction of the urgently needed Department of Veterinary Medicine that it would be preferable not to use IDA funds, but instead to transfer them to the unallocated category of the Credit.1/ In June 1973 IDA accepted this proposition, and the credit sums relating not only to the veterinary department but also to the two vocational centers were transferred to the unallocated category. The Credit Agreement was not, however, amended to delete these institutions from the project. During project implementation the Government made some additions to the project; for example, extra dormitories and dining facilities. The final disbursement was made on February 24, 1978, almost two years after the ori- ginal Closing Date of April 30, 1976; however, the original Closing Date took account of the provision of professional services over an extended period, and construction of project facilities in fact took almost twice as long as had been anticipated. The cost overrun appears to have been of the order of 164%. II. PRINCIPAL ISSUES Project Content 5. As has been mentioned above, IDA in 1972 and 1973 agreed that the two vocational centers and the department of veterinary education would not be financed under the Credit. Although IDA informed the Government that it would not reimburse for costs of these institutions, the Credit Agreement was not amended to delete these institutions, and either to cancel the corresponding credit amounts, or to transfer them to the unallocated category. It is true that the appropriate procedure for such an amendment of the Credit Agreement is open to interpretation, but it is clear in this case that the amendment should have been made. Instead, a letter was sent to the Government agreeing to keep the Credit amount unchanged while eliminating financing for these three items. This letter went on to say that, as the construction (of 1/ The Region disagrees, stating that "IDA procedures were not in question. The design of the Department of Veterinary Medicine was lavish and out of line with space standards agreed earlier with the Bank. There proved to be little dialogue possible on this matter." - 3 - the department of veterinary education, and by analogy the vocational centers also) would be undertaken by the Government, "no change in the project description was necessary. However, all subsequent missions up to and including the Completion Mission (see PCR, para. 1.5) have spoken of these three institutions having been deleted; no supervision report has referred to them other than to say they had been deleted and the PCR (Table 1) indicates that they were not provided under the project. While the PCR is unclear regarding project costs it seems that the cost of these institutions was not included in the 'actual costs' of the project. Bank Group policy regarding the handling of changes in project content and Bank Group procedures for the amendment of project descript ons appear to have escaped the attention of operating staff in this case. Ineffective Project Implementation Arrangements 6. The arrangements made for implementing the four project items not under the aegis of the Ministry of Education were insufficient to assure the timely completion of these items. The draft of the Appraisal Report on which IDA based its negotiating position proposed that the existing Project Unit in the Ministry of Education, suitably reconstituted and strengthened, should be made responsible for the execution of the entire project, including the project items which fell under the jurisdiction of the Ministry of Labour and the Ministry of Agriculture. At negotiations the Moroccan representatives objected strongly to the appraisal mission proposals on the grounds that they would run counter to their administrative system which did not allow inter- ministerial executive organs below the Prime Minister's level. 7. Ultimately IDA agreed that the Project Unit would execute only the project items within the jurisdiction of the Ministry of Education and that permanent officials would be designated in the other two ministries concerned who would be responsible for their respective project items. This was an unhappy compromise, especially as neither of these Ministries had been represented at negotiations. These four project items gave IDA substantial problems during the early years of project implementation, with the inter- ministerial cooperation being described as a failure. No IDA financing was ultimately provided for three of these items (para. 5) and the fourth (a Forestry School) was implemented by the Project Unit in the Ministry of Education. This experience demonstrates the importance of developing clear- cut implementation arrangements for all the components of a project. 8. During project implementation the Project Unit itself came under severe criticism from IDA supervision missions, which stressed the Unit's disregard of Credit Agreement procedures, and intimated in 1972 that disburse- ments might be suspended. Bank staff suggested changes in the Moroccan 1/ The Region states that the two vocational schools were eliminated from the project because of misprocurement and the Department of Veterinary Medicine was also eliminated because of a failure to reach agreement on design standards. This, the Region adds, had been agreed between IDA and the Government, and thus there was no confusion within IDA concerning project content. project management to Bank Group upper management. However, by late 1972 the project management had improved to such a degree following the appointment of additional staff to the Project Unit that it was considered that the Project Unit should implement the Ministry of Agriculture items. The Higher Teacher Training College (Ecole Normale Superieure-ENS) 9. As has been mentioned (para. 1) the generation of this project took longer than the Government had expected. One of the elements which gave trouble was the ENS, an institution to train upper secondary teachers. The problem, as seen by the January 1969 Reconnaissance Mission, was that exten- sive rethinking of the structure of the ENS, its status, its relationship to the University, its organization and its future expansion was taking place and consequently nothing definite could be submitted to the Bank Group at that time. Ultimately these problems appeared to have been resolved, and the Appraisal Report makes no mention of them. However, these problems seem to have reappeared by the time of the Completion Mission, which in an early draft PCR (dated March 20, 1980) commented that, "despite the good results and reputation of the ENS, a 1978 decree which establishes regional ENSs provides for it to discontinue, by 1981, the training of senior secondary school teachers." The Completion Mission considered that it might be possible to convert the ENS into an Education Sciences Institute, with due account taken of the activities of the country's National Pedagogical Institute. IDA staff, commenting on this, considered that the UNESCO PCR mission should have pursued the rationale for such a decision with the Government. However, it would appear that IDA staff themselves were in a better position to enquire into this matter, as the establishment of another eight ENSs was envisaged under the proposed fifth education project which IDA staff were discussing with the Government..1! 10. In the most recent version of the PCR (paras. 3.04-3.06) the 1978 Decree is not mentioned: the PCR states that the ENS has become the Univer- sity Faculty of Education and the future of its teacher training programs has not yet been officially determined. Supplementary information obtained during audit from IDA staff regarding the ENS is included in para. 20 of this report.2Y 1/ Four regional ENSs are included in this fifth project. 2/ The Region adds that "the situation is now clear. The ENS trains senior administrative and pedagogical personnel--higher level managers and technicians--for the education and training system. It provides back- stopping, advisory services vis-A-vis teacher training institutes of all levels. This role of the ENS is not new but has become its primary one as of 1981 (see para. 20)." -5- Physical Implementation (i) Architectural Designs 11. The PCR records that the selection of architects was initially made by the Government without adequate evaluation of their technical qualifica- tions and experience and that IDA accepted these selections because commit- ments had been made, but required contracts linking architects, engineers and quantity surveyors (PCR, paras. 2.18 and 2.19). On the whole, building designs proved adequate although the performance of the teams was unequal. However, the different designs produced run counter to the recommendations for standardization made in 1973 by the maintenance expert and there are various design defects (PCR, paras. 2.20, 2.22 and 2.23). (ii) Construction, Furniture and Equipment 12. For major works international competitive tendering procedures were used, later widened to local contractors meeting prequalification requirements because of limited initial response. There were problems because bids were well above estimates; however the PCR records that the quality of construction is fair and the building quality above the usual standards (PCR, paras. 2.24-2.28). 13. There were various delays in the procurement of furniture and equipment because of the 'Lack of a procurement officer in the Project Unit and the preparation of incomplete lists with inadequate specifications. None of the responsible authorities in the project institutions was associated with the preparation of lists of furniture and equipment. There has been some duplication of dormitory lockers with built-in storage in the dormitory blocks. However, the PCR does not record any substantial problems with furniture and equipment procurement or utilization. (PCR, paras. 2.29-2.31). (iii) Costs and Disbursements 14. The PCR indicates that total project costs, at US$35.6 million equivalent, were 164% over the appraisal estimate of US$13.5 million; however, as has already been noted, the PCR is unclear as to what is included in the project content and what is not. What is certain is that there was a consi- derable cost overrun, occasioned mainly by delays in project implementation during a period of substantial price increases. These cost overruns were met entirely by the Government. 15. The Credit Agreement provided for financing under Category I 100% of the furniture and equipment costs net of taxes and under Category II 45% of other costs, including civil works. In 1976 IDA suggested these disbursement percentages be reduced to 45% and 25% respectively, and a 1976 supervision mission reported that these changes were acceptable to the Government. However, when the Government officially replied, it pointed out that there was no provision in the Credit Agreement for a reduction of the Category I dis- bursement percentage. Ultimately the Category II disbursement percentage was - 6 - reduced to 16%, with that for Category I being left unchanged at 100%. Disbursements lagged because of the slow implementation and also because of slow Borrower reimbursement procedures. Final disbursement was made in February 24, 1978, almost two years after the original Closing Date of April 30, 1976. IDA staff seem not always to have been aware of the situation regarding disbursements, as is evidenced by the fact that, though by January 1978 the Closing Date had already been extended to April 30, 1978, i.e., a date after disbursements were in fact completed, a further extension of the Closing Date was made, to January 31, 1979. IDA Supervision 16. As with all education projects audited to date, Bank Group supervi- sion missions paid considerably more attention to the architectural aspects of the project than the educational objectives which the project was designed to achieve and which had been described to the Board in some detail during the Board discussion prior to approval. Architects took part in all thirteen supervision missions, educators in six.!! The project was regarded as having serious problems in its early start-up phases, and two major missions were mounted in 1972 to address them; the problems were clearly stated and solu- tions were found. 17. Later, project supervision became more perfunctory. Although this was perhaps justifiable on the architectural side, where IDA was reasonably well informed and no serious problems were being encountered, IDA management was insufficiently informed regarding the educational developments in the project schools. Even where educators were involved in missions and their terms of reference specifically included educational elements, the final supervision reports made no reference to these elements. Towards the end of project implementation, supervision became very superficial, and the last two supervision missions--in 1978--appear to have taken place in ignorance of the fact that the project funds had already been completely disbursed: in an internal memorandum of April 1978, IDA staff reported that "Disbursements are almost completed" even though the project had been fully disbursed by February 1978.2/ 1/ The Region comments that "physical implementation problems were prominent at start-up and continued through the project, requiring close follow-up by architect/engineers. Educators participated at critical junctures and spent considerable desk time on review of key documents." 2/ The Region notes that "the educator assigned to the project was involved at appropriate junctures and that as is usually the case supervision reports do reflect in-house inputs to supervision. The apparent two month time lag in disbursement information is not unusual in itself particularly since the difference between almost disbursed and fully disbursed is by definition slight. The Region further remarks that supervision often continues after full disbursement--for example, in the guarantee period for civil works and equipment or when project insti- tutions open their doors. Supervision at this juncture would suggest diligence rather than perfunctoriness." - 7 - III. EDUCATIONAL IMPACT National Institute of Pedagogy (IPN) 18. Little information is available in the PCR regarding this Institute (PCR, paras. 3.01-3.03). Subsequent information obtained from IDA staff in mid-1981 indicates that, "Until the recent 1980 establishment of the depart- ment responsible for the development of a practical activities curriculum for primary schools, the Institute was used for a variety of activities centered around short inservice courses for inspectors and teachers. Its program was determined on an ad hoc basis, to meet immediate needs of the Ministry of Education, and its impact in terms of pedagogical development was minimal. The development of the primary curriculum and the preparation of related learning materials in the past eighteen months have brought the Institute closer to its original objective. Support in the proposed fifth education project for the practical activities program should give it a substantial lift but it is certainly not living up to its potential at the moment. Having determined the general objectives for the Institute as outlined in the appraisal report, the Ministry of Education did not translate these into an effective plan of action. Circumstances are at the moment, albeit slowly, moving the Institute towards fulfilling its original objectives in terms of pedagogical research and development." Higher Teacher Training College (ENS) 19. The PCR (pars. 3.04-3.06) indicates that between 1975-76 and 1979-80 the ENS had trained 1,080 teachers and that the training, which used modern teaching methods and a period of practice teaching, appeared good, however, the ENS had become the University Faculty of Education, and the future of its teaching programs had not been determined. 20. Valuable supplementary information was provided OED by IDA staff in mid-1981, which stated that, "The student enrollment of 300 has always been maintained, and has risen to as high as 450 in the past two years. More day students have been accepted and the facilities of an adjacent CPR as well as the university have been used to accommodate the increased enrollment. Until 1979, 90% of the students were graduates from the arts faculties. During the project period the ENS developed some excellent pedagogical programs and a highly qualified staff of teacher trainers. As a result of the increased need for science and math teachers as well as the pressure to Moroccanize the senior secondary teaching staff, the Government opted for a new policy (new formula) in teacher training (1978), namely the establishment of regional teachers' colleges offering a four-year post-secondary teachers' program which included both academic and pedagogical studies leading to a teaching qualifi- cation equivalent to a degree. A decree was issued formally establishing the new colleges and programs in 1978. A second decree was prepared changing the status of the ENS but has never been issued. It was proposed that the latter - 8 - would, from the 1981 academic year, become effectively the faculty of educa- tion of the university and concentrate exclusively on post-graduate (M.A. - Ph.D) programs aimed at producing the teacher trainers for the new colleges. This change in policy was never officially communicated to the Bank, nor has the issue been totally resolved. In the absence of a formal decree changing the status of the ENS and the considerable pressure by the university to retain the responsibility for teacher training, the ENS continues to enroll students without formal recognition. There is no indication to date that the ENS will discontinue its training of teachers - although it has accepted its additional role of providing post-graduate degree programs, and, indeed, recent developments in terms of teacher requirements strongly militate against any change in status in the immediate future." Regional Teacher Training Centers (CPRs) 21. The PCR deals in some detail with the educational impact of these centers in its paras 3.07-3.14, pointing out that the output from facilities constructed under the project has been small in relation to total output, and that the quality of the training offered is likely to be adversely affected by the sharp decrease in recurrent funding for the centers. 22. IDA staff stated in mid-1981 that the present enrollment in all CPRs, including those constructed under the project, was almost 8,000, considerably higher than projected, and that just under 4,000 were graduating annually. The reduction of the three-year program (as at appraisal) to two years (IDA was not advised) had helped the rapid Moroccanization of the Junior Secondary School staff; however, dissatisfaction with the standards achieved in the CPRs had been expressed in many quarters. This could be attributed in part to the shortened program. The lack of qualifications of the teacher training staff as well as the relatively poor standards of students enrolled had also affected the quality of the output. The delayed installation of equipment, including the audio visual and language laboratories, as well as the scarcity of qualified and experienced staff to use these facilities effectively, was still a factor in their under-utilization. However, having closed the gap in teacher requirements more attention was being paid to the quality of the training, and plans were under consideration for a return to the original three-year training period, at least in certain subjects such as foreign languages, maths and science as well as the introduction of in-service programs. The reintroduction of the French option in the CPRs had been the direct result of the large number of students allowed to repeat in the junior secondary classes and the delays in implementing the Arabization program in the school system. The large number of repeaters required a second French stream running parallel to the on-going Arabic stream, and this had necessitated a continuous input of teachers qualified to teach in the French medium. Short of a dramatic change in MOE's policy on repeating grades, there was no immediate solution to the problem in spite of the obvious danger that two separate cadres of teachers were being trained and its implications for the future. - 9 - Science Laboratories in Senior Secondary Schools 23. The PCR in its paras. 3.15 - 3.19 does not deal with the project schools per se, contenting itself with noting the increase in the proportion of students achieving the science baccalaureat from 20% in 1965 to 55% in 1979, and with the increase in the number of Moroccans in the science teach- ing staff. 24. IDA staff in 1981 said that it was extremely difficult to isolate output from the project schools within the statistical data provided for all the secondary schools offering the science options; what was certain was that 55% of secondary school enrollment was in the science option and that espe- cially in the project schools adequate laboratory facilities had been provided to try to ensure the quality of the learning process. It appeared, however, that the laboratories were underutilized for practical science experiments and poorly maintained. These problems were attributed to the over-enrollment in many secondary schools, the shortage of qualified science teachers, and the inadequate budget provision for materials and maintenance. The audit sees no reason to differ from this assessment. Teacher Training in Industrial and Commercial Subjects in Senior Secondary Schools 25. Here again the PCR (paras. 3.22-3.25) contents itself with giving statistics on students and teachers in these subjects in the education sector as a whole. The audit has no supplementary information on this matter. The Royal School of Forestry-Sale 26. The PCR gives no information even in its revised form on this project item, but following OED comment IDA staff have provided the following information, "This institute was visited during the mission of May 1981. This component of the project has been completed satisfactorily. The Govern- ment decided, at their expense, to remove the kitchen and dining facilities from the- administration block to a site closer to the residential area. The new dining-room is nearly complete and incorporates the small "lean-to" which was the only part of the facility financed by the Bank. The buildings, furniture and equipment financed by the Bank (classes, laboratories, library and dormitories) have been in use for three years with a full enrollment of 80 forestry extension officers and 25 auxiliaries in training. The output is 40 extension officers per year. The buildings were exceptionally well maintained and according to the staff, completely adequate for their pur- poses. - 10 - IV. CONCLUSIONS 27. From the standpoint of the provision of educational facilities of a reasonable standard this project was generally speaking a success, although even here the buildings have not been simplified to help in maintenance (para. 11) and there have been problems of furniture and equipment procurement (para. 13). These problems are almost endemic in education projects, and deserve more attention than the Bank Group has afforded them up to now. From the standpoint of the emphasis on reform and quality improvement on which the project was justified to the Board the achievement, or rather perhaps the Bank Group information on the achievement, is much less: the Pedagogical Institute has had disappointing results so far although the future appears more hopeful (para. 18); the future teacher training function of the Higher Teacher Training College is in doubt (paras. 19 and 20) although some good work has been done to date. Dissatisfaction has been expressed on standards achieved in the Regional Training Centers (para. 22), the hoped-for improvement in science education has not been achieved though some quantitative improvements have been made (paras. 23 and 24). The Forestry School however appears to be doing reasonably well (para. 26). 28. Experience with this project has shown that: (i) there appears to have been confusion within IDA regarding project content, and Bank Group policy regarding changes in project content and their effect on credit or loan amounts escaped the attention of operating staff (para. 5); (ii) the project implementation arrangements for project elements not directly under the control of the project unit were ineffective (paras. 6-8), (iii) the future and status of the higher teacher training college, which had already been a matter of concern during reconnais- sance in 1969, is still uncertain (paras. 9 and 10); (iv) IDA supervision of this project neglected the educational aspects on which the project had been justified to the Board, (paras. 16-17); and (v) little or no information is available on some project elements (paras. 23 and 25). - 11 - THE KINGDOM OF MOROCCO Credit 266-MOR SECOND EDUCATION PROJECT PROJECT COMPLETION REPORT June, 1982 Education and Manpower Development Division Europe, Middle East and North Africa Regions  - 13 - FOREWORD This Report is a restricted document prepared at the request of the International Development Association on completion of disbursement of the latter's Credit 266-MOR for a second IDA supported Education project in Morocco. A Unesco Completion Mission visited Morocco between 15 October and 2 November, 1979. Due to financial constraints imposed on the Completion Mission and in view of the national and religious holidays which took place at the end of its stay, the mission was obliged to reduce its program of visits. All teacher training institutions, with the exception of Oujda, were visited, as well as four science laboratory blocks out of six, seven industrial technical secondary schools out of ten, and ten commercial secondary schools out of thirteen. The mission was briefed by IDA before leaving for Morocco. It attempted to determine how the project was implemented compared with appraisal objectives and estimates, and to analyse the relevance, effectiveness and efficiency of education in project institutions. This report is based on: (a) Information obtained from records and data available in IDA in Washington, and in the office of the Project Unit in Rabat; (b) Forms initiated by the mission, distributed to the institu- tions during the visits and concerning educational data on teachers and administrative staff of the related institutions; (c) Visits to the sites of 29 out of 38 institutions during the Completion Mission; and (d) Discussion with government officials in the Ministry of Education and members of the Project Unit in Rabat, as well as at regional level with institution directors/principals and teachers. - 14 - SUMMARY Project Content i. An IDA Credit (266-MOR) for US$8.5 million for a Second Education Project in Morocco was extended in August, 1971 to support the expansion, under the responsibility of the Ministry of Education, of general and specialized secondary schooling and to meet needs for secondary teachers, by constructing and equipping a new National Institute of Pedagogy (IPN), a new Higher Teacher Training College (ENS) and six new Regional Teacher Training Colleges (CPR); by constructing and equipping a science laboratory block in each of six secondary schools, by providing additional workshops and laboratory equipment for ten existing secondary schools with industrial sections and new equipment and furniture for commercial sections in thirteen existing secondary schools. ii. The Project provided support also for the construction, equipping and furnishing of two new vocational training centers, under the Ministry of Labor, and of a new Department of Veterinary Medicine in the existing Institute of Agronomy "Hassan II" in Rabat, and for the extension of the Royal School of Forestry, both under the Ministry of Agriculture. iii. Technical Assistance for strengthening the Project Unit and for establishing a new maintenance section in the Ministry of Education was also included in the Project. iv. In June 1972, IDA deleted from the project the two vocational training centers because the Ministry of Labor had already started their construction without any prior review of site plans, drawings by the Bank and without consideration for the agreed procurement procedures. It deleted also the Department of Veterinary Medicine because it could not endorse the Ministry of Agriculture's designs or reach agreement on reasonable modification. Implementation v. Slow progress in the initial period, due to poor management by the Project Unit, lengthy procedures for appointing this Unit's personnel and consultant architects, site acquisition problems and other difficulties, caused execution of the project to be over two and a half years behind the original schedule. vi. IDA's efforts to have the Project Unit tackle the problem of maintenance did pay off. A survey of the condition of existing facilities was completed and the creation of a formal maintenance section was created in 1974. vii. Acceptance of some buildings, including most of the CPRs, is still only provisional, owing to delays in installing equipment. Insufficient educational guidance in the design phase also had some impact on the educational flexibility of space. - 15 - viii. The buildings financed under the Credit have been entirely com- pleted. Extensions, mainly to students' accommodation, decided on by the Government in 1974 with the approval of IDA but paid for from other external sources, are at the finishing stage. Some instructional equipment for project institutions has still to be installed. ix. Two, out of the three, Technical Assistance posts to be provided under the Credit have been filled: an architect for the Project Unit and a maintenance architect for the Ministry of Education. The post of procure- ment specialist for the Project Unit was deleted after protracted negotiations. Costs x. Owing largely to the initial delays, which resulted in construc- tion subsequently taking place during a period of escalating costs, Project expenditures came to the equivalent of US$35.6 million against the appraisal estimate of US$13.5 million, an over-run of 163% (or of 96% in national currency owing to revaluation of the dirham). Other reasons for the over-run were the additions made by the Government (estimated cost US$2.5 million, actual cost US$7.9 million) and rising costs associated with the extraordinarily rapid growth of construction demand in relation to growth of construction capacity. The Credit of US$8.5 million, the whole of which has been disbursed, equals 24% of the total project cost. xi. Quantitatively, educational objectives have generally been achieved but, for some of the Project items, quality is hampered by under- supply of qualified teachers and by delays in distributing and installing some instructional equipment and accessories. xii. Satisfactory curricula have been developed and are in operation in the Regional Teacher Training Centers. The curricula sometimes differ from appraisal intentions in details but the educational objectives of the Centers are being met. A very satisfactory form of training has been developed in the Higher Teacher Training College. Staffing in the institutions is adequate. Educational Impact xiii. The key project institutions have been successful. The Higher Teacher Training College has attracted good students and progressively upgraded its programs. It has subsequently been designated the university faculty of education. The regional teacher training centers have increased the supply of junior secondary students although some fall-off in enroll- ments has occurred due to the attraction exercised by new higher teacher institutes which offer some equivalence to the university program. The technical and commercial lycees, however, are insufficiently attuned to the demands of business and tend to channel the students into higher educa- tion. Nonetheless, the objective of Moroccanization at this level has - 16 - been achieved. In terms of science education, the science blocks have been fully-even over-utilized as the number of high school students studying science subjects has significantly increased. The quality of instruction, however, appears to suffer due to inadequate provisions for recurrent expenditure. Recommendations xiv. The Moroccan Project Implementation Unit (PIU) should be strengthened by educators to collaborate in preparing architects' briefs, worksheets and equipment lists. Sites should be technically surveyed and their legal status ascertained before selection. Flexibility of use should be an aim in design. Standardization should be encouraged where this would facilitate maintenance and specialized teams should be established for this. Notice should be given at a very early stage of any procedures the Bank proposes which contrast with national practice. xv. The National Institute of Pedagogy could benefit from technical assistance in developing its activities. For technical education, a stable and full-time national teaching staff needs to be developed, along with flexible part-time use of engineers and technicians engaged in production. The administrative unit for technical education needs to be strengthened, especially in view of the Bank's Fourth Education Project. To keep equip- ment and services in proper order, maintenance budgets should be increased - to keep pace with inflation at least - with differentials to match regional variations in service costs. - 17 - CHAPTER I PROJECT ORIGIN AND CONTENT Project Origin 1.01 The International Development Association (IDA), in October 1965, approved its first Credit (79-MOR) in an amount of US$11 million, for an education project in Morocco. The project, completed in 1979, provided for the expansion of general and specialized secondary schooling through the construction and equipping of 21 schools. 1.02 By 1970, educational enrollments at all levels had increased substantially and it had become clear that the most urgent needs were for modernization, increased efficiency and higher quality to ensure that the education system effectively produced an adequate supply of trained manpower. This included the gradual replacement by Moroccans of the large number of expatriates in middle-level and higher posts (in both the public and the private sectors of the economy). 1.03 To meet these needs, the Government, in 1970, asked IDA for a second credit to help in financing a number of educational projects. IDA agreed to support several of these (with modifications in some cases) and in August 1971, an agreement was signed for a Credit (266-MOR) towards a second IDA-supported Education Project. The Credit was for US$8.5 million, some 63% of the total estimated project cost of the equivalent of US$13.5 million. The Credit became effective on 10 December 1971 and the planned Closing Date was to be 30 April 1976. Project Content (see Table 1) 1.04 The Project provided for: (a) Constructing, equipping and furnishing a National Institute of Pedagogy (Institut Pddagogique National-IPN) in Rabat, to be responsible for research into the structure, content and tech- niques of teaching, for coordinating the training of primary and secondary school teachers, for advanced in-service courses for teachers and supervisors and for experimentation with new teaching equipment, production of prototype equipment and printing of manuals. (The Government had earlier requested a separate scientific equipment production center.) (b) Constructing, equipping and furnishing a new Higher Teacher- Training College (Ecole Normale Sup6rieure-ENS) in Rabat. This would provide one-year post-graduate courses to train university graduates as teachers in senior secondary schools. From 1975, the College would have an output of some 300 senior secondary teachers a year. - 18 - (c) Constructing, equipping and furnishing six new Regional Teacher- Training Centers (Centres Pddagogiques R4gionaux-CPR), located at Fes, Kenitra, Marrakech, Meknes, Oujda and Tanger. The Centers would provide 3-year post-secondary pre-service and in-service training for teaching in junior secondary schools. They would have a total enrollment of some 4,320 students and an annual out- put of some 1,200 teachers. (d) Constructing, equipping and furnishing science laboratory blocks for six existing secondary schools. These schools would have a total of 1,300 upper secondary science students, with an annual output of about 400. (The Government had also requested class- rooms for the junior secondary level). (e) Additional equipment for ten existing technical secondary schools to enable them to introduce an upper secondary course leading to a "baccalaurdat" in mathematics and technical subjects. These schools would have a total enrollment of 2,400 students with an output of 450 a year of whom 250 might be expected to acquire the "baccalaurgat". (f) New equipment and furniture for the commercial sections of thirteen existing secondary schools, which would introduce advanced courses leading to a "baccalaur6at" in economics, and which would provide education for 3,400 students with an output of 1,200 a year, about 700 of whom would probably have acquired the "baccalaurdat". (g) Constructing, equipping and furnishing two new vocational training centers with an annual output of 200 to increase the supply of skilled labor for industry. (h) Constructing and equipping a new Department of Veterinary Medicine which would introduce a six-year course of veterinary training in the existing Institute of Agronomy "Hassan II" in Rabat. The new department would provide about 25 trained veterinarians a year. (i) An extension to the Royal School of Forestry at Sal6. This would introduce a new two-year course for the training of field agents as a supplement to the already existing training of field assis- tants. Forty field agents were expected to graduate each year. (j) Technical assistance in the form of the services of two architects and a procurement specialist to assist the Moroccan Government in the execution of the project and in the maintenance of school buildings. - 19 - Changes in Project Content 1.05 In June 1972, IDA decided to delete from the Project the two items (g) and (h) above - the two vocational training centers and the Department of Veterinary Medicine in the Institute of Agronomy - since construction of the centers had already begun and the design for the Institut? was in an advanced state on lines which IDA could not endorse. The Association agreed to transfer the unspent amounts for these items to the "unallocated" category of the Credit. 1.06 In 1974, the Government decided to improve boarding conditions in the teacher-training institutions by accommodating four students per room instead of the eight recommended in the Appraisal Report, by introducing central heating in the dormitories (as well as in the administration area), by building students' foyers and by providing cafeteria counters and services in the dining halls. 1.07 Also, the Government added 250 beds to the ENS and 220 beds for each of the CPR, thus raising the sleeping accommodation of each CPR from 500 to 720 beds. The total estimated cost of these additions, which were approved by IDA but financed by the Government and external aid other than that of IDA, was about US$2.5 million, bringing the total estimated cost of the Project to US$16 million. CHAPTER II PROJECT IMPLEMENTATION (See Table 2-4) Organization and Management 2.01 The Project Unit responsible for the implementation of the First IDA Education Project (79-MOR) was assigned project management responsi- bilities for the Second IDA Education Project (266-MOR) for all project items under the Ministry of Education (MOE). 2.02 To ensure effective coordination between the various Ministries involved in carrying out the project, the Credit Agreement specified (Schedule 4, part C) the designation of an official directly responsible to the Prime Minister. After deletion of the two project items under the Ministry of Labor and of the Ministry of Agriculture, this person ensured the coordination of the remaining project item under the Ministry of Agri- culture - the extension of the Royal School of Forestry in Salg - while technical supervision for this item was carried out by the Project Unit. 2.03 The Credit became effective on 10 December 1971. with an original Closing Date of 30 April, 1976 which was postponed three times as difficul- ties developed with project implementation. The Credit was finally closed on 31 January 1979, two years and nine months after the appraisal estimate. - 20 - 2.04 Soon after the Credit became effective (on 10 December 1971), the situation began to deteriorate. The Director of the Project Unit was at the same time Director of MOE's Equipment Division and was, therefore, not available full-time for the project. The consequences were poor management of the Project Unit, communication problems and delays in recruiting local staff and technical assistance experts for the Project Unit, and in appointing consultant architects. 2.05 In June 1972, the Association went to the point of informing the Government of its intention to suspend disbursements for the project, if measures suggested earlier for improving the situation were not carried out. In March 1973, the architect appointed under technical assistance for the project took up his post in the Project Unit. Shortly afterwards, a full-time Director of the Project Unit was appointed (May 1973). The Project Implementation Unit attached to the Department of Administrative Affairs at the MOE was created. From then on both the Project Unit's efficiency and the general situation improved, but implementation was already a year behind scheduli. 2.06 The appointment of a procurement specialist, included in the Credit Agreement, never materialized despite the efforts of the Project Unit. The expert foreseen was replaced by an official of the Ministry of Education responsible for technical education, who worked on a temporary basis for the Project Unit in preparing master lists of equipment. From 1973 until the completion of the project, the Project Implementation Unit performed efficiently, despite the many problems encountered. 2.07 Apart from the slow start of the project, due to the weakness of the Project Unit at that time, further delays arose from: (a) Serious delays in the selection of appropriately qualified archi- tects compounded by insufficient contractual safeguards to ensure satisfactory engineering studies. Consequently, IDA requested that each architect form a partnership with an engineering firm and a quantity surveyor. The exercise took six months to complete but proved beneficial. (b) Site acquisition procedures - land reclaimed by the owners forced the Ministry to find alternative sites for the IPN and the ENS. (c) Approval by IDA of preliminary designs was delayed because archi- tects failed to follow agreed space standards. (Some preliminary designs were presented three times to the Association before approval.) (d) The favorable situation of the building industry in the private sector, with consequent lack of enthusiasm on the part of building contractors and suppliers to participate in tenders for the public sector. - 21 - (e) Difficult site work conditions during the construction phase. (f) Failure of building contractors and suppliers to complete their contracts. 2.08 Finally, there was a delay in the acceptance of some buildings. This problem arose because the buildings had been provisionally accepted, ruling out--under Moroccan law--further commitment for works on the part of contractors and suppliers. In addition, many CPRs had not yet received their audio-visual equipment owing to disputed claims between suppliers and the Customs Department. For this reason, certain CPRs had still to be provisionally accepted. 2.09 The main weakness in project implementation had been the absence of educational guidance. First, the worksheets in certain cases did not take into consideration the specifications of the educational program of the Appraisal Report (for instance, those for the CPRs did not specify that the demonstration room could be divided in two smaller rooms). Second, on only half of the Supervision Missions was the architect accompanied by an educator, despite the architect's repeated recommendation in his Supervision Reports that an educator should accompany him. Project Costs 2.10 The total cost of the project, including extensions and additional expenses, was, at the time of the completion mission's visit, DH 132.2 million, the equivalent of US$35.6 million. This is double the appraisal estimate in dirhams, or over two and a half times in US dollars. (This difference is due to the re-valuation in 1975 of the dirham from 5 to 3.71 to the dollar.) 2.11 The extensions decided on in 1974 were estimated at US$2.5 million, but the actual cost reached US$7.9 million. The total cost of the first (IDA) phase of the project, i.e. excluding the extensions, is DH 102.7 million or USt27.7 million, over twice the appraisal estimate in US$ equivalent (see figure 1 below). - 22 - Figure 1: ESTIMATED AND ACTUAL PROJECT COST (including contingencies - in US$ million equivalent) (a) Total Project: 1st Phase (IDA) and 2nd Phase + Additions Appraisal Actual Difference Estimates /1 Cost /2 % . Civil Works 8.2 24.0 + 192 . Furniture and Equipment 4.3 8.9 + 107 . Professional Fees 0.8 2.5 + 212 . Technical Assistance 0.2 0.2 + 0 TOTAL 13.5 35.6 + 163 /1 Including the two vocational training centers and the Department of Veterinary Medicine - Rate of Exchange: DH 5 = US$l. /2 Rate of Exchange: DH 3.71 = US$1 (b) 1st Phase (IDA) Appraisal Actual Difference Estimates /1 Cost /2 % . Civil Works 7.5 17.3 + 130 . Furniture and Equipment 4.1 8.3 + 102 . Professional Fees 0.8 1.9 + 137 . Technical Assistance 0.2 0.2 + 0 TOTAL 12.6 27.7 + 120 /1 Excluding the two items quoted in the above foot-note 1. Rate of Exchange: DH 5 = US$l /2 Rate of Exchange: DH 3.71 = US$l. 2.12 The main reasons for the great difference between estimated and actual costs are: (a) Administrative and organizational difficulties which accumulated at the beginning of the project's implementation delayed its completion by two and a half years. This meant that the construc- tion phase coincided with a period of greatly increased costs, as noted below. - 23 - (b) National and external inflation, which gathered impetus from 1973 resulted in the cost of some of the most important building materials going up by 45%. From 1975 until the end of the project (December 1979), the average annual cost escalation figure in the building industry was over 12%. Thus, the cost escalation for the construction phase only, when the two and a halE yeai extension is taken into account, was around 36%, whereas the appraisal estimate was 20%. (c) Lack of competition among building contractors, who had plenty of work in the private sector at the time the project was put out to tender, leading to unacceptable quotations. Some project items were tendered three times. (d) Unexpectedly high costs of site works for some project items (CPR Tanger and Fes: above 30% of construction costs) resulted from topographical conditions and from inadequate technical surveys. These were the principal reasons for IDA encouraging the local architects to associate themselves with engineers. 2.13 In view of the substantial cost over-runs expected from cost escalation and from extensions to the project, and in order to continue disbursements until project completion, the Government agreed to an IDA recommendation, made in February 1976, that a reduced percentage of 26% instead of 45% be paid for disbursements on civil works and of 45% instead of 100% for those on equipment and furniture. Disbursements 2.14 The first application for withdrawal was sent during the first half of the fiscal year 1973/74, two years after the effective date of the project. The amount was about US$0.01 million, far below the appraisal estimate as for the same date of US$2.36 million. This was due to early delays in project implementation owing to administrative and technical difficulties. 2.15 Delays also occurred during the execution of the civil works owing to lengthy and complicated procedures for Government approval of contracts and payments involving the Project Unit, the Ministry of Education and the Ministry of Finance. Payment procedures followed an interrupted pattern instead of one continuing throughout the whole fiscal year. The Basic Data Sheet shows actual disbursements compared with appraisal estimates. These difficulties--principally due to government procedures for committing expenditures--have continued to be a factor of delay in Norocco. Execution 2.16 Sites. At the time of signature of the Credit Agreement, most of the sites had been selected but not acquired. Fortunately, Moroccan legislation for acquisition of sites for public institutions authorizes - 24 - study of site conditions and preliminary design even bffore the legal pro- cedure is completed. However, legal problems with the owner of the site selected for the Higher Teacher Training College (ENS) in Rabat, forced the authorities to choose another site, resulting in serious delays. 2.17 Most of the sites are adequately located for new construction and/or extension with development work properly designed and implemented. Apart from the ENS, the sites with which problems were experienced with consequent delays and higher costs, were: (a) CPR Tanger: Extensive site preparation - leveling, retaining walls, foundation work, etc. - due to the topography of the site and bad soil conditions. (b) CPR Oujda: A power line crossed the site and long delays occurred before the line was moved and the boarding blocks could be built. (c) CPR Fes: Shortage of water and low pressure made it necessary to build a water-booster station. Special attention will be required in the case of Tanger CPR in view of the steep gradient of the site and bad quality of the soil. The drainage of the site, if not properly maintained, might create erosion, thus endanger- ing the foundation work. 2.18 Selection of Architects. The selection was initially performed on an ad hoc basis without adequate evaluation of the technical qualifications and experience of the architects concerned. IDA was not consulted, but since the Government had made commitments, IDA's goal became to strengthen rather than replace the team of architects. Certain of these proved insufficiently qualified, leading to serious delays. 2.19 Many of the firms were unaccustomed to working with engineers who were often hired by the contractor, a practice which could have led to less than adequate technical studies and high costs. IDA therefore required contracts linking architects, engineering and quantity surveyors. The reluctance of the authorities on this issue accounted for a delay of some six months. It may be added that IDA's position proved beneficial to the project. 2.20 Eight teams were finally selected. One team was given responsi- bility for three project items, three teams had two project items each, and the rest had one each, representing their degree of experience and capacity. One architect was finally replaced because of poor performance. Although the performance of the teams was unequal, on the whole building design proved adequate. Design Development 2.21 General Comments. The variation in the qtality of the architects is reflected in the buildings. This varied considerably, particularly in - 25 - respect to the standards applied in the provision of natural light, adequate proportions to the rooms, noise control, and teaching aids (such as notice boards, exhibition areas, etc.). The rigidity of the structural system in certain cases prevented flexibility in the use of space for group teaching, dynamic activities, and combination of several classes for conferences and films/slide shows, etc. 2.22 The six selected teams produced six different designs for the CPRs, with six varieties of building components; doors, windows, parti- tions, built-in furniture, etc. This runs counter to the recommendations of the maintenance expert made in 1973 for standardization of building components to facilitate maintenance and replacements, as well as to the hopes expressed for better coordination between designers of new institu- tions and the MOE's maintenance division. 2.23 Failure to respect the schedules of accommodation and worksheets by the architect firms during the early phase of project implementation was a cause of many rejections of preliminary designs submitted to the PIU and to IDA (some of them being submitted as many as three times), which led to considerable delays. In some cases, e.g. the preparation rooms in the science laboratory blocks, in the absence of teaching load details, the areas proposed in the worksheets are open to question. The preparation rooms are too small - the combination of courses in physics and chemistry necessitates the presence at the same time of several assistant professors in a preparation room of 20 sq.m. The organization of benches, shelving, wash-basins, etc. is inadequate, and the shelving is not. consistent with the amounts of material and equipment provided under the project. Civil Works 2.24 Before inviting tenders, the Project Unit established, with the approval of the IDA Supervision Mission, a division of tenders for build- ing, furniture, and equipment into four different groups: Group I: Equipment to be purchased through international tendering for; a. 6 science laboratories in senior secondary schools; b. 10 industrial workshops in technical secondary schools; c. existing commercial courses in 13 secondary schools. Group II: Construction and furniture: designation of building con- tractors and purchasing of furniture through national tender- ing for: a. 6 science laboratories in senior secondary schools; b. the Royal School of Forestry in SalA (construction only). Group III. Construction, furniture and equipment; designation of con- tractors and suppliers through international tendering for: - 26 - a. 5 CPRs (construction); b. furniture and equipment for 6 CPRs and the Royal School of Forestry. Group IV. Construction, furniture and equipment. designation of con- tractors and suppliers through international tendering for the: a. Institute of Pedagogy (IPN); b. Higher Teacher Training Institute (ENS); c. CPR in Tanger. 2.25 International competitive tendering for civil works in Groups III and IV was invited with pre-qualification of contractors. However, in view of the small number of firms selected and the consequent limitation of competition among them, the Project Unit, following IDA recommendations, opened the tendering to other contractors meeting pre-qualification requirements. 2.26 Earlier in November 1973, in view of the excessively high con- struction tenders received, the Government had proposed to IDA an alterna- tive tendering procedure involving splitting the works into areas of specialization. However, since this alternative would have provoked serious coordination problems, severely tested the supervision capacity of the Project Unit and had led to poor results in the Fir6t Project, it was not pursued. Despite the opening of tendering to other contractors, most tenders were rejected owing to the small number of firms participating. This made re-tendering necessary and further delayed implementation of this phase of the project. 2.27 The original schedules of accommodation prepared by IDA and included with the worksheets in the Credit Agreement were used with little variation (except perhaps for circulation areas) thanks to careful checking by IDA Supervision missions before approving preliminary designs. Compared with similar institutional projects implemented either by the Ministry of Education or by the Ministry of Public Works, the quality of the buildings under this project is above standard. 2.28 At most of the sites, the quality of construction is fair and most of the constructing firms have performed satisfactorily. One firm in charge of the construction of the first phase of the ENS had its contract terminated at the completion of this phase owing to unsatisfactory performance. Furniture and Equipment 2.29 Apart from the furniture for the six laboratory blocks (Group I), procurement of furniture and equipment was carried out through inter- national competitive bidding-. Delays occurred during preparation of the - 27 - master list of furniture and equipment owing to the. (a) delays in follow- ing IDA procedures during the early phase of the project due to lack of a procurement officer in the Project Unit; and (b) presentation of incomplete lists with inadequate specifications to IDA for its approval. Delays occured also owing to lack of international bidders, with the result that bids had to be invited more than once. 2.30 Another source of concern was the delivery of furniture and equip- ment to the institutions. None of the responsible authorities in the institutions had been associated with the preparation of the lists and most of the directors had not. received a master list of equipment and furniture by the time of delivery, although in each case, the Director or his repre- sentative was asked to sign a delivery receipt. 2.31 The quality of the furniture is, in general, adequate. Most of the education facilities are provided with tubular frame and wood top tables for two persons and with individual chairs. Provision of utility outlets was not fully sufficient to meet teaching needs. Conversely, each CPR was provided with 720 dormitory lockers which duplicate the already provided built-in cupboard included in the construction costs for the dormitory blocks. The Project Unit took measures to send the surplus to other institutions. Maintenance of Educational Facilities 2.32 The appraisal mission had recommended inclusion of maintenance of the project facilities as a covenant to the Credit Agreement. This specifies in Section 4.03 that "The Borrower shall, before 31 October 1972z (i) establish in its Ministry of Higher, Secondary and Technical Education and Teacher Training a special administrative section for the maintenance of its school buildings at the secondary and post-secondary levels; and (ii) establish adequate maintenance procedures for such schools, including procedures for preventive maintenance, with the assis- tance of the architect referred to in Part II (C) of Schedule 2 of this Agreement". 2.33 One man/year of expert assistance had been provided to allow for recruitment of an architect with experience in school building maintenance to assist the maintenance section in the Equipment Department of the Ministry of Education. The expert worked in Morocco during three different periods. At the time of his arrival on 1 February 1973 for the first visit, the section had been established only on paper. The expert there- fore devoted the six months - 1 February to 31 July 1973 - to an overall analysis of the problem and to the launching of a sample survey of educa- tional buildings in the country. - 28 - 2.34 While recruitment of qualified personnel delayed creation of a maintenance section, it was finally officially established in the depart- ment of administrative affairs, with a staff of one architect and three technicians in September 1974. During 1974, the expert reviewed and finalized the result of the sample survey carried out in early 1973 and prepared guidelines for evaluating the maintenance of educational buildings. 2.35 Five years later, the situation was as follows; The maintenance service is now attached as a section to the Division of Maintenance and Equipment which is headed by a Director and two deputies. Twelve persons (technicians, one expatriate architect and secretarial assistance) are working full-time for the Division. At the regional level, each provincial delegation of the Ministry of Education has one technician responsible for school building maintenance. The inventory of all secondary and post- secondary institutions in the country has now been completed but owing to the present financial situation, the allocations for maintenance are minimal. It is hoped that when conditions improve, the allocation will be raised to a figure nearer to 4 percent of MOE's recurrent expenditure. Project Extension 2.36 Extension of the project to provide the teacher training institu- tions with dining and recreational facilities, central heating and extra dormitories, has had mixed results. The student community halls in the ENS and in some of the CPRs are widely appreciated but the ENS restaurant does not operate since students have access to the nearby university cafeterias where meals are cheap. 2.37 The central heating in the dormitories raises problems of mainte- nance and recurrent expenditure since; (a) the fully automatic heater plants, each serving 720 students, require the services of highly specialized operators who are not to be found in the public sector; and (b). Fuel costs are normally met from the "boarding fund" of DH 200 per student per month and this is insufficient to cover these costs. All CPRs' directors have indicated that unless the boarding fund fee is increased or some budget allocation is provided for the purchase of the fuel, they will not be able to operate the heating plants. 2.38 The increase of 220 beds in the boarding capacity of each of the regional training centers has, so far, not proved useful. Most of the CPRs are located either in urban areas or in the suburbs of the provincial centers, so that many students live nearby and are day students, with the consequence that the dormitories are not fully utilized. - 29 - CHAPTER III EDUCATIONAL RESULTS A. Teacher Training and Research National Institute of Pedagogy (Institut Pgdagogique National-IPN) 3.01 The mission visited the buildings of this Institute but was unable to meet with the persons in charge. Construction is complete but some equipment has not yet been installed. In particular, the planned printing facilities do not exist. 3.02 The Institute is supposed to cope with numerous activities of different types and levels and this does not help its smooth functioning, especially in view of its limited resources. In particular, incorporation in it of the science equipment center has operated against such functioning. 3.03 The Institute is under the Secretary General for Higher Education but deals mainly, in its first phase, with primary and secondary level activities which are the responsibility primarily of the other of the Ministry's two Secretaries General. Higher Teacher Training College (Ecole Normale Supgrieure-ENS) 3.04 The ENS has the capacity for 300 students and determines the quota of students for each subject area according to needs and/or the number of applicants. Since 1975/76 the ENS has trained 1,080 teachers for senior secondary schools. Promulgation of the status of the ENS and of its graduates in advance of the academic year 1975/76 stimulated interest in teaching posts, and ENS has always had sufficient numbers of candidates of a good standard. 3.05 Training is divided into 290 periods of theoretical courses and 168 periods of practice (including practice teaching "stage"--see Table 5). Modern teaching methods are used. The use factor of the language laboratories and audio-visual classrooms is 100% during the first six months of each school year. Class observation is of pedagogical activities either in practice classes in lycdes or in specialized ENS classrooms. The "practice teaching" takes place in senior secondary schools and lasts at least one month, throughout which the student-teacher takes charge of a class. The research which may be experimental, individual or in groups, initiates the future teacher into pedagogical research. The subject selected must be related to one or more of the ENS's training activities, and concerns either aspects of pedagogical research or specific problems of education in Morocco. This research does not involve a thesis but results are published in a periodical, the first issue of which was written in collaboration with IPN. To facilitate publishing, the ENS has printing rooms and equipment, but the latter is not yet installed because of a shortage of funds. - 30 - 3.06 ENS results seem good, although the mission did not get sufficient data in time to analyse quantitative results and the ENS has in fact become the University Faculty of Education and is to develop post-graduate degree programs. The future of its teacher training programs has not as yet been officially determined. Regional Teacher Training Centers (Centres P6dagogiques R6gionaux-CPR) (Tables 6-13) 3.07 Thanks to the establishment of the CPR, a rapid increase has taken place in the number of Moroccan qualified teachers in junior secondary schools. For the six CPRs financed by Credit 266-MOR Table 6 gives the total number of students in 1979/80 and number of students by specialisation in 1978/79, as well as number of students by year of study as planned in the appraisal report. 3.08 For the originally intended three-year course, an enrollment of 7.20 for each CPR was planned, a total of 4,320 students. With the actual two-year course given, 3,896 students were enrolled in the CPR in 1978/79, while in 1979/80 the five CPRs visited by the completion mission had some 3,340 students, or 93% of the planned enrollment (see Tables 7a to 7f). 3.09 The use of temporary buildings allowed training to begin in 1971 and the first cohort was promoted in June 1972. Among the first three CPRs opened in 1971 was the CPR of Fes, operating in a former agricultural school. CPR enrollment was 496 in 1971/72, 1,342 in 1973/74 (6 CPRs including Fes and Mekn6s). In 1974/75, enrollment reached 2,957 for 13 CPRs including Fes (430), Meknas (225), Oujda (236), Marrakech (230), Tanger (115) and Tetouan (26) - later to be transferred to Tanger. In 1978/79, all CPRs (by then only 12) had 7,667 students, of whom the 6 project CPR had 3,811, almost exactly half. As shown in Table 8 they had half also of the total graduates. Table 9 compares the percentage foreseen and actual distribution by type of program of students and graduates. 3.10 There were some differences between planned and actual distribution, as is shown in the two following figures; Figure 2; PLANNED ENROLLMENT AND 1978/79 ENROLLMENT Planned 1978/79 Difference Arabic 1,080 743 - 337 French 1,080 1,143 + 63 History, Geography 360 382 + 22 Mathematics 1,260 1,130 - 130 Physics, Chemistry 180 101 - 79 Natural Sciences 360 312 - 48 TOTAL 4,320 31811 - 509 - 31 - Figure 3: PLANNED GRADUATES AND JUNE 1979 GRADUAfES Planned 1978/79 Difference Arabic 300 292 - 8 French 300 685 + 385 History, Geography 100 161 + 61 Mathematics 350 431 + 81 Physics, Chemistry 50 44 - 6 Natural Sciences 100 140 + 40 TOTAL 1,200 1,753 + 553 3.11 Overall enrollments in 1978/79 were below the level planned, but the number of graduates that year exceeded the target level. This resulted from: (a) the change in the length of the course from 3 years to 2 (modification taken before the proiect imDlementation); (b) a higher rate of return; (c) the replacement in Tanger of the specialization in Arabic by specialisation in French. The fact that it is possible for the students to work in small groups and that the teaching staff is both qualified and numerous (with consequent lower number of hours per teacher and lower student:teacher ratio) results in a lower drop out rate. 3.12 The CPR objective of "Moroccanization" of junior secondary school teaching staff by 1982 was reached in advance; in 1979/80, all teachers in these schools were Moroccans. This was possible not only because of a higher production from the CPRs than the one planned but also because training was begun earlier than foreseen, by the use of temporary build- ings. Of the total of 14,936 teachers trained in the CPR from 1971-1979, 7,077 were trained in project CPRs before the completion of their educa- tional facilities. The number of teachers trained in the educational facilities financed by Credit 266-MOR is only 577, or 4% of the total of 14,936 (Table 10). This small percentage representing the production of the project CPRs in relation to the total number of CPR graduates led the mission not to enter in detailed explanation about quantitative differences between appraisal and actual numbers. 3.13 According to the national authorities, the training received in the CPRs had good results. The mission is unable to give any opinion on this because 1979/80 is the first school year for those graduating in June - 32 - 1979 to serve as teachers. In some respects, the results may have been deleteriously affected by the lack of exposure to language labs and audio-visual equipment, which had not been fully installed. The mission was informed that these deficiencies will be remedied and that it is hoped that for the next school year everything will be in good order. A further deficiency is that demonstration and observation rooms, in the opinion of the mission, do not at all respond to pedagogical needs. 3.14 Tables 12 and 13 give data on funds allocated to CPR by item and data on average allocated per student. The decrease is very sharp, and it may be questioned how directors with such small recurrent budgets are able satisfactorily to manage their institutions. B. Science in Senior Secondary Schools Enrollments 3.15 One of the objectives of Morocco's 1968-75 educational plan was to equalize the enrollment in senior secondary schools of arts and science students, and to equalize also the output of holders of the "baccalaur4at" in these subjects. 3.16 In 1965, the disparity had been very marked, no less than 80% of those gaining the "baccalaurdat" doing so in arts. By 1971, when the second IDA Credit (266-MOR) was agreed, the numbers had become nearly equal, 45% of the 4,500 students passing the "baccalaurgat" doing so in science. 3.17 However, among the scientific subjects, there were considerable inequalities. More than 50% of science passes in the "baccalaursat" were in Natural Science (s6rie Sciences Exp6rimentales) as against 20% each in Mathematics and Economics, and 10% in technical fields. Bilingual passes increased from 37% in 1965 to 67% in 1972, this change taking place at the expense of the original education and arabic medium sections. 3.18 In 1976/77, enrollment in scientific subjects was 56,300, or 48.6%, of the total enrollment of 115,736 for senior secondary schools, and in 1977, of the 23,561 passes in the "baccalaur6at", 54% were in Science. In 1978/79, the number of students enrolled in scientific subjects was 75,409, or 50%, of total senior secondary enrollment, and the number of passes in the "baccalaurdat" in 1979 was 31,614 of which 55% were in Science. 3.19 In 1976/77, out of 1,097 teachers of physics/chemistry and natural science, 125 - or slightly more than 10% - were Moroccans. In 1978/79, out of 1,497 teachers in these subjects, 230 - or more than 15% - were Moroccans showing a slow progression in the Moroccanization of the science teaching staff. - 33 - Equipment 3.20 Generally speaking, science blocks constructea as part of IDA's second education project are well equipped and well utilised by the students. Specialized classrooms are used practically 100% of the time, of which 55% is taken up by practical work with groups of 24 students. For the remaining time, facilities are overcrowded, being used by groups of 30 to 50 students attending courses of a theoretical nature. Such over- crowding, with students numbering 4 to 5 per work bench planned for only two, is responsible for the deterioration of the electrical fittings, plumbing and gas outlets. The latter are not in fact used because of a lack of gas. 3.21 Recurrent budgets allocated by the Government for the science blocks are not periodically adjusted to meet rising costs. The procedure used in purchasing materials and small items of equipment from these budgets, and delays due to lack of stocks among suppliers, often bring about cancellation of orders and loss of funds. Deliveries of equipment and supplies purchased with special Government funds are sporadically distributed to schools, sometimes without consuitatior with the personnel responsible for the laboratories. C. Technical Training - Industrial and Commercial Subjects in Senior Secondary Schools Enrollments 3.22 In 1965, the number of those passing the "baccalaur4at" was 200 in industrial subjects and 250 in commercial subjects, i.e. 11% and 13.5% respectively of all passes. In 1972, at the beginning of the second IDA project, these numbers increased to 270 for industrial subjects and 560 for commercial subjects, but the percentages of all passes dropped to 3.8% and 7.9% respectively. 3.23 In 1978/79, 2,676 students in 14 institutions attended industrial courses at "baccalaur4at" and 819 at the technician level. Such students amount to only 2.3% of total senior secondary enrollment and the number of "baccalaurdat" passes is only 4% of the total. 3.24 In senior secondary commercial courses there were 6,739 students spread among 18 schools, forming 4.7% of the total enrollments. 3.25 In 1976/77, the teacher staff in industrial subjects numbered 275, of whom 38.5% were Moroccans. For commercial subjects there were 198 teachers of whom 32% were Moroccans. In 1978/79, the teaching staff for industrial subjects totalled 368 of whom 34% were Moroccans, the student- teacher ratio being 9.5:1. For commercial subjects there were 312 teachers (of whom 22% were nationals) the student-teacher ratio being 21.6:1. - 34 - Equipment 3.26 Equipment was distributed to industrial sections in 10 lyc6es and to commercial sections in 13 lycdes after long delays of 4 or even 5 years after the project began. While specialised class-rooms were available everywhere to receive this equipment, some of them were not as functional as might have been desired. 3.27 Some heavy equipment was delivered with but few accessories and some machine tools without the necessary parts. Electrical specifications were not always respected. Certain shops using a 220 volts/50 cycles (3-phase) power supply received 380 volts/50 cycles (single phase) while the school electrical supply was 110 volts. This led to the purchase of additional accessories and a transformer on the meagre budget allocated to the school. Many of these problems have finally been solved by good collaboration between heads of schools and the division for technical education of the Ministry of Education. CHAPTER IV CONCLUSIONS AND RECOMMENDATIONS Construction 4.01 After a disappointing performance during the early phase of project implementation (until 1973), the Project Unit now seems better organized with a staff which has acquired over the years experience in implementing this type of project. 4.02 The Project ran two years and nine months behind schedule, which greatly increased costs since construction took place in a period of escalating prices. The main reasons were: (a) delays in selection of architects and further delays in establishing appropriate contracts with engineering firms--a beneficial departure, however, from normal Moroccan procedures; (b) lengthy site acquisition procedures, despite assurances given IDA by the authorities; (c) lack of proper technical evaluation of some sites, which caused delays and high costs in site development work. 4.03 Main general conclusions concerning design and site works are; (a) the project suffered from insufficient educational guidance during its design phase. - 35 - (b) lack of standardization of buildings as a result of the selection of a different architect for each institution - contrary to the recommendations of IDA; (c) the structural rigidity of the buildings impedes the flexibility in the use of space expected in the project training institutions. 4.04 In view of the foregoing conclusions, it is recommended that: (a) The Project Unit be strengthened by educators who would prepare all educational work sheets and equipment lists, and would follow-up educational matters from the beginning of the project. (b) A technical survey of each proposed site, giving the particulars of the soil conditions and of services available, should be carried out before definite site selection. Also, the legal status of the site should be ascertained before signature of the Credit Agreement, so as to avoid lengthy acquisition procedures at the start of project implementation. (c) An appropriate Architect's Brief should be prepared, based on a detailed educational program, and made available as early as possible, so as to enable the consultant architects to study the Brief and make appropriate comments before starting the preliminary design phase. (d) Standardization in the design of project items of a similar nature should be encouraged, so as to include standard building compo- nents (windows, doors, shelves, etc.) which would facilitate their replacement. The same applies to equipment for general services, such as central heating furnaces, pumps, etc. (e) Specialized maintenance teams should be established and student participation in maintenance should be the rule. (f) Since the education system needs to adapt itself to the many changes imposed by the world's evolution, it is essential to encourage flexible design, e.g. open spaces with movable partitioning, multiple-purposes areas, etc. complementing specialized rooms. (g) Supervision missions include greater participation of educators whose specialties match the project requirements. Teacher Training 4.05 The teacher training component of the project seems to have been well justified in terms of education development priorities. The project institutions have achieved nearly capacity enrollment and arrangements for - 36 - expansion of the ENS indicate a high level demand for places. The project objectives are being effectively pursued and, while the new curricula implemented in ENS and CPRs do not conform in all respects to those proposed for the project, the changes reflect advances in training concepts. 4.06 The National Institute of Pedagogy is suffering from an over-wide range of activities. Some specialist help could assist the authorities concerned to build up a reasonable and feasible program of activities. Science Education 4.07 Despite uneven quality due to constraints on equipment and supplies and to rapid increases in enrollments, the science facilities have met a clear need. Numbers of high school graduates in science and maths have increased substantially and Moroccanization of teaching staff for these subjects is now a reasonable mid term goal. Technical and Commercial Education 4.08 The system of secondary industrial and commercial training seems oriented, above all, towards preparing pupils to pursue higher level studies. Direct entry from school into industrial employment appears extremely low - barely 20% of pupils from the industrial sections enter employment - while those who pass in the economic sections all proceed to higher studies. The commercial and secretarial sections supply the labor market with qualified personnel but in limited quantities. 4.09 Industrial, commercial and economics training are based on a traditional type of methodology, although provided with technical means which seem to fit their present nature. Except in commercial and secretarial training, the curricula and methodology used correspond to the principal objective of the lycdes, i.e. to prepare students to enter higher technical courses. 4.10 Technical training facilities are not used three months a year, and moreover new technical lycdes will be created under the 4th Education Project. Relations between school and industry, and relations between training and labor market requirements should be improved. The new programs being prepared for the technical lycdes of the fourth education project which will be introduced in existing lycdes - will be more practical and industrially oriented. This development emphasizes the need for well trained full-time national technical teachers to replace the full-time but unstable expatriate teaching staff. 4.11 The participation of an up-to-date qualified part-time technical teaching staff from national and private enterprises should be organized in order to improve the professional content of the training, as well as its cost. 4.12 The administrative unit in charge of technical education and vocational training should be restructured in order to cope with the development and modernization of industrial and commercial education. - 37 - TABLE 1 (Page 1 of 2) PROJECT CONTET The Project, formulated to support the expansion of general and specialized secondary education in Morocco, comprised: (i) am requested by the Government; (ii) an appraised; and (iii) an actually provided. i) _ (ii) iii Requested Actually by Appraisal prvsoe (a) Construction, furnishing and Government provisioned equipping of: 1. National Institute of Pedagogy (IPN): . Rabat 1 1 lx 2. Scientific Equipment Production Centre : 3. Higher Teacher Training College" . Rabat 1 1 1 So Regional Teacher Training Colleges: . Oujda 1 1 . Meknbs 1 1 . Kenitra 1 1 1 . Fes 1 1 1 . Marrakech 1 1 1 . Tanger 1 1 . Tetouan 1 . Agadir 1 5. Scientific blocks for 6 ea4sting senior secondary schools . Tasa (Iyde Ali Be Barr) . Pea (Lyc6e Moulay Slimane) 1 1 1 . Marrakech (Lycde Mohamed V) 1 1 1 . Tetouan (Lyode Jaber Ibn Hayan) 1 1 1 . Azrou (Lycde Tarik Ibn Ziad) 1 1 1 . Mohamedia (Collbge Mixte Ibn Yassin) 1 1 1 1/ In addition, the Government requested the construction of 280 science class- rooms for junior secondary schools. X IN, including part of scientific equipment production centre. - 38 - Table 1 (Page 2 of 2) 6. The extension of the Royal School of Forestry: . Sa16 1 1 1 (b) Additionalequipment for: 1. 10 industrial courses in 2nd cycle tech- nical schools (Lyedes): . Agadir 1 1 1 . Casablanca (2 Lyc6es) 2 2 2 . Khourigba 1 1 1 . Safi 1 1 1 . Meknbs 1 1 1 . Oujda 1 1 1 . Rabat 1 1 1 . Kenitra 1 1 1 . Marrakech 1 1 1 2. 13 commercial courses for senior secondary technical schools: . Agadir 1 1 1 . Casablanca (3)schools) 3 3 3 Safi 1 1 1 . Meknbs 1 1 1 . Rabat (2 schools) 2 2 2 . Oujda 1 1 1 . Fes 1 1 1 . Marrakech 1 1 1 . Targier 1 1 1 . Tetouan 1 1 1 (c) Technical Assistance: Expert . Architect for Project Unit - 1 1 & Maintenance Architect for MOE - 1 1 (d) Project items included in the Credit Agree- ment but deleted during implementation: Construction, furnishing and equipping of 2 vocational training centres: . Casablanca 1 - . Kenitra 1 - Department of Veterinary Medicine, Institute of Agronomy, Hassan II: . Rabat 1 - PROJECT DIPINTATIGI CHEIIZ Project 1197 1974 1975 1976 1977 im 79 Items 1 12 6 121 6 12 1 6 11 6 121 6 12 6 12 A. Design and IPN preparation ENS of bida doc. 6 Labs 6CPRs Ec. Forest. B.preparation IPN of master list ENS furn.& equip. 6 Labs 6 CPRa Eo. forest. 10 teo.+13oo __==_ C.Tenders, contra. IPN awarding. ENS 6 Labs 6 CPRs 01 Eo. forest. - l0teo+ 130om + t- D.Construction IPN a * guarantee ENS C periods 6 Laba 6 CPRs rkaMB Eo. forest. E.Dellvery & IPN 2 installation ENS 6 cpR%- Ec. forest. LOtec +13Oom. F.Technical Architect assistanoe Proo. spec. Maint. Arc. Disbursement : Appraisal in 000's US$ equivalent. Apr_slSceActual SAppraisal Schedule. rimJiET cOm-1 ('0006 mål) MasE li/ (ith 6t b.tension) CVNS11#CTION A SiT . iE E iDT ~DUIi1iiE A 4k EQUIn~ PnoFmiioA, nS TECiSiICAL ASSITAC 10VTAL Appr86 E1 t A.tL..i Apprlal E.LAt-t Act1 Appr l Etimateo A~tl ApprKIsi E.ti. te Ackuk % App-i-1 E~ties 19 Eoo nt. Cos! Diff. I Coat Ditt. Fel. Incl. Co.t Ditt. . . Cost Dif. E.. -i. C. Ditt. Coting. Con1ing. Conting. Co-ting. Conting. ContinS. Conting. Conting. C-ng, Conting 2EC10R 1. 1ECIER 'lAiiTIMING National In.sttt fr (Ii) 796.0 1,039.8 2.869.7 1,007.} 1.158.4 897.0- 79.6 103.4 }52.5 - - - - 1.882.9 2,296.6 4,119.2 fligher Teacher Trein ing Colleg (ENS)D 1,913.3 2,495.1 6.247.8 764.8 879.5 1,7}6.8 191.6 2k9.2 W7.3 - - .. - >Q 7 >,62).8 8,491.9 3b-t.tal Z ,3 ^,529.9 9.117.5 158 1.772.1 2.0}7.9 2,63.8 # 29 71.2 352.6 859.8 4194 - - - 5,9-0.4 12.611.1 +113 A.5i onal Techer Trining Col*ng. (em) 0.Jd 3.87.9 5,002.3 7.47N.6 * 49 Meknès 4,24).1 5,516.0 9,491.6 * 72 Kontr 3.111.9 4,045.5 8,090.8 100 re. 9,253.2 5.529.2 .905.4 4 62 TYnwi- }9.0 5.114.2- ,7. &ub-tot.I (CPn) 23.312.> 30.}06.0 49.953.1 : 65 6,588.8 7.5f7.1 8.916.9 * 17 2.602.k 3.3. 5.716.4 - 69 - - D4X7 7 1)3., 16.576.2 . 76 -. 14 -- 17 -5 1TAL, TrACIMEA 1TAIiiN 33.835.9 59,070.6 * 79 8,360.9 9.615.0 11.550.7 * 20 2.073.6 ,-19- rf Figors for cotnrtion and ølte d.eeopInt inolud., - built-in urn,Itur . - entrol heattMn for dormitorls., -1dnitretion rd *fok-b&y. v ithot printin6 fellitites. －「·汕， - 42 - Table 5 HIGHER TEACHER TRAINING COLLEGE Number of periods per subjects and by school 1 ftases Observation Micro- Teaching To-tal Subjects of class-room teaching Practice hou3 s Review Pedagogy (general) 30 18 28 76 Pedagogy (special) 30 18 28 76 Pedagogy (experimental) 12 12 - 24 Statistics 12 8 - 20 Other language 6 6 7 19 Audio-visual 6 - 10,30 16,3o Research 6 6 4 16 Observation of classrqom 24 - - 24 Micro-teaching - 48 - 48 Training complement - 21 21 School legislation - - 17,30 17,30 TOTAL 126 116 116 358 Nota: Teaching practice phase not taken into account. PLANNED AND ACTUAL ENROLUMENT IN PROJECT CPR INSTITUTIONS BY TYPE OF PROGRAM Planned Earollment Actual gnr1lmext and Graduates Total Graduates 1979/1B0 Enrolment Location Programme Specifications 1 2 *_ Total 1978/79 June 1979 1 2 Total 1/ FES-SAISS Total 280 240 200 720 794 x oo -64 664 Arabic 70 60 50 180 126 57 ... *** *** French 70 60 50 180 181 117 ... *** *** Mathematics 70 60 50 180 220 84 ... ... ... Natural Sciences 70 60 50 180 142 67 ... ... ... Physical Education not planned 80 80 ... ... ... KENITRA Total 280 240 200 720 618 22 x 400 2 721 Arabic 70 60 50 180 30 French 70 60 50 180 150 88 History-Geography 70 60 50 180 163 64 ... ... Mathematics 70 60 50 180 175 42 ... ... ... MARRAKECH Total 280 240 200 720 692 28) 408 X22 'D0 Arabic 70 60 50 137 29 106 ... French 70 60 50 180 192 115 80 117 197 Mathematics 70 60 50 180 193 66 126 ... Natural Sciences 70 60 50 180 170 73 96 73 169 MEKNES Total 280 240 200 720 712 443 229 672 Arabio 70 60 50 180 161 64 159 36 195 French 70 60 50 180 180 142 , 80 36 116 History-Geography 70 60 50 180 169 97 - 108 97 205 Mathematics 70 60 50 180 202 92 96 60 156 OUJDA Total 280 240 200 720 612 O ... ... ... Arabic 70 60 50 180 189 84 ... French 140 120 100 360 201 126 ... ... History-Geography not planned 50 - Mathematics 70 60 50 180 172 93 TANGER Total 280 240 200 720 508 195 211 22 550 Arabic 70 60 50 iF - - - - French not planned 239 97 130 108 238 Mathematics 140 120 100 360 168 54 110 88 198 Physics-Chemistry 70 60 50 180 101 44 71 41 114 GRAND TOTAL 1680 1440 1200 4320 3891 1833 ... ... 1j/ Of whom 232 are girls - 2/ Of whom 32 are girls - x Estimates . Regional Teacher Training Centrp (CPR) Location: FES-SP Educational Sheet Number of Weekly Periods for Each Type of Training (1st and 2nd Orades) x General Complementing Teachers' Total Lessons T W P W Langu. P C PES - Others Theor. Pract. _ Abbreviations Arabic 34 3T 7 8 - 8 6 12 14 120 T W i Tutorial Work French 16 72 8 - 8 2 16 18 140 PW: Practical Work ------P C : Physics-Chemistry History-Geography - - - - - - -P C PhysicalCeductio __________________ ____ _____ PES t Physical Education and Mathematics 54 18 18 24 - 12 3 24 21 174 Sports U.F i Use Factor Physics-Chemistry - - - - - - - - - - Natural Science 26 30 80 10 6 10 7 21 18 208 Total 130 158 98 50 6 38 18 73 71 642 Number of Buildings Educational Facilities Needed Actual Differ. Actual Classrooms 1-0 32 - 12 57 231 7 10 + 3 66 Specialized Classrooms - 64 18 - - - 6 16 - 104 3 2 - 1 150 Practice Classrooms - - - - - - 71 2 2 0 100 Outside - - - - - 38 - -38 - - - - Language Laboratory - 32 - 50 -- 82 3 2 - 1 115 Science Laboratory - 30 80 - 6 - - 116 4 2 - 2 165 Total 130 158 98 50 6 38 18 73 71 642 19 18 - 1 106 Enrdlment Planned 1978/ Boarding No. of Students - - -------Request Predit 79 Capacity Total wer room Students 720 720 749 Planned 500 8 Boarders 49( 500 340 Supplement 220 4 Teachers 31 20 52 Actual 720 4 Others4/ 25 ... ... Used 340 4 Usable 0 4 1/ PW + T W. Based on 35 periods a week. Plus an additional A8 periods a week of T.P. Supervision. Y Administrative, boarding, domestic, mnintenunce, etc. nLaff x Estimate Regional Teacher Training Centre (CPR) Lncation: KENITRA Educational Sheet Number of Weekly Periods for Each Type of Training (Ist and 2nd Grades) x General Complementing Teachers' Specializations Total Lessons T W P W Iangu. P C PES Others Theor. Pract. Abbreviations Arabic 34 381/ 1/ 8 - 8 6 12 14 120 T W : Tutorial Work French 20 901 T 17 10 - 10 3 21 24 178 P W : Practical Work . P C : Physics-Chemistry Hlistory-Oeography 80 10 20 13 - 10 12 19 17 181 I PES : Physical Education and Mathematics 54 18 18 24 - 12 3 24 21 174 Sports I U.F: Use Factor Physics-Chemistry - - - - {6- - Natural Science - - - Total 188 156 38 55 40 24 76 76 653 Number of Buildinis Educational Facilities Needed Actual Differ. Actual ___ ____ ___ ____ ___ 127. (2)-(1) 19 Classrooms 188 33 - - - - 22 60 - 303 9 10 + 90 Specialized Classrooms - 85 38 - - - 2 16 - 141 4 4 0 100 Practice Classrooms -- - - - 76 3 2 -1 110 76 - Outside - - - - - 40 - -40 - - - - Language Laboratory - 38 - 55 - - - - 93 3 2 - 1 135 Science Laboratory --- - -- Total 188 156 38 55 - 40 24 76 76 653 19 18 -1 106 Enrolment Planned 1978/ Boarding No. of Students Request PredIt 79 Capacity Total per room Students 540 720 618 Planned 500 8 Boarders 385,/ 500 5404/ Supplement 220 4 Teachers 19- 20 4 jY Actual 720 4 Others5/ 21 ... More Used 720 less than 30_ than 41 1/ PW + T W. }/ Based on 35 periods a week. Plus an additionnl 48 periods a week of T.P. Supervision 1/1979/80, / Administrative, boarding, domestic, maintenance, etc. staff. Of whom 24 are Moroccans. X Estimate Regional Teacher Training Centre (CPR) Location! MARRAKECH Educational Sheet Number of Weekly Periods for Each Type or Training (lei and 2nd Grades)x General Complementing Teachers' Total Lessons T W P W Langu. P C PES Others Theor. Pract. Abbreviations Arabic 35 7 8 - 8 7 12 13 120 T W :Tutorial Work French 20 9 10 - 1 PW : Practical Work 90 17 10 3 21 211 178 P C Physics-Chemistry Hi1story-Geography - - -PES Physical Education and Mathematics 54 18 18 24 - 12 2 22 20 170 Sports U.F t Uae Pactor Physies-Chemistry - - - - - - U U a Natural Science 24 30 80 10 9 10 8 19 17 207 Total 133 175 98 52 9. 46 to 74 74 675 Number of Buildinis Educational Facilities Needed Actual Differ. Actual (1)q1 (2) (2)-k) %4 Classrooms l3) 32 - . - - 11 60 - 26 .7 10 + 3 67 Specialized Classrooms - 75 18 9 14 - 114 4 2 - 2 165 Practice Classrooms - - _- - - - 74 2 2 0 105 Outside - - - - - 40 - - 40 - - - Language Laboratory - 38 - 52 - - 90 3 2 - 1 130 Science Laboratory - 30 80 - 9 - - 119 4 2 - 2 170. Total 133 175 98 52 9 4o 20 7A 74 675 20 18 - 2 110 Enrotment Planned 1978/ Boarding No. of Students Enroment Request 3redit 79 Capacity Total aer room Students 720 720 692 Planned 500 8 Boarders 49 500 400 Supplement 220 4 Teachers 31- 20 495/ Actual 720 4 Others4/ 25 ... 25x Used 720 2 / P W + T W. / Based on 35 periods a week. Plus an additional 48 periods a week of T.P. Supervision Administrative, boarding, domestic, maintenance. etc. staff. Of whom 30% are Moroccans x Estimate. Regioial Teacher Tralnin& Centre (CI'l) location: MEKNE8 Educational Sheet Number of Weekly Periode for Ench Type of Training (let and 2nd Grades) x General Complementing Teachers' Speciall7.ations - Total leasons T W P W Langu. P C PES Others Theor. Pract. -~ Abbrevi ations Arabic 51 571 11 12 - 12 9 18 '21 180 T W :Tutorial Work French 16 721 1 8 - 8 2 16 18 140 P W Practical Work History-Geography 96 12 24 15 - 12 15 24 21 219 P : Physics-Chemistry PES Phyalcal Education and Mathematics 45 15 15 20 - 10 2 19 17 143 Sports Physics-Chemistry -U. Use Factor Natural Science - Total 28 156, 9 55 -1 42 28 77 77 682 Number of Buildings Educational Facilities Needed Actual Differ. Actual U.F _____~~~() / (__ __ __ ______2T (2)-(]) K Classrooms 208 34 - - - - 25 6) - 33o 10 10 0 94 Speclalized Classrooms - 86 39 - - - 3 14 - 142 4 4 0 100 Practice Classrooms - - - - - - - - 77 3 2 - 1 110 77 Outside - - - - - 42- - - 42 - - - - Language Laboratory - 36 - 55 -- - - 91 3 2 - 1 130 Science Laboratory - - - - - - Total 208 156 39 55 - 42 28 77 77 682 ! 18 -2 110 Enrotlment Planned 1978/ Boarding No. of Students Request Predit 79 Capacity Total per room Students 540 720 712 Planned 500 8 Boarders 385 500 471 Supplement 220 4 Teachers l9s-' 20 48 Actual 720 4 Othersi/ 21 ... ... 1/ PW 4 T W. / Based on 35 periods a week. / Plus an additional 48 periods a week of T.P. Supervision Administrative, boarding, domestic, maintenance, etc. ataff. Of whom two-thirds are Moroocans. x timate. Regional Teacher Training Centre (CPR) Location: OUJDA (not visited) Educational Sheet Number of Weekly Periods for Each Type of Training (let And 2nd Orades)x General Complementing Teachers' Specializations Total Lessons T W P W Langu. P C PES Others Theor. Pract. Abbreviations Arabic 51 57 12 - 12 9 18 21 180 T Wi Tutorial Work French 24 101 1 12 - 12 4 26 30 216 PW Practical Work History-Geography 32 4 8 6 - 4 4 6 6 70 P C Physics-Chemistry PES Physical Education and Mathematics 45 15 15 20 - 10 3 21 18 147 Sports U.F Use Pactor Physics-Chemistry - - - - - - - - - - Natural Science - - - - - - - Total 152 184 23 50 - 38 20 71 75 613 Number of Building a Educational Facilities Needed Actual Differ. Actual I Classrooms 152 36 - - - - 17 57 - 262 8 -O Specialized Classrooms - 100 23 - - - 3 14 - 140 4 - - Practice Classrooms - - - - - - - - 75 2 2 0 10$ 75 Outside - - - - - 38 - - 38 Language Laboratory - 48 - 50 - - 98 3 2 1 140 Science Laboratory - Total 152 184 23 50 - 38 20 71 75 613 17 Enrotiment Planned 1978/ Boarding No. of Students Request Predit 79 Capacity Total per room Students 540 720 612 Planned 500 8 Boarders 385 500 ... Supplement 220 4 Teacher& 1 J 20 40 Actual 720 4 Othera4/ 21 ... ... Used ... ... 1/ PW+TW. 2/ Based on 35 periods a week, Plus an additionn] 48 periods a week. of T.P. Supervision Administrative, boarding, domestic, maintenance, etc. staff. x Estimate Regional Teacher Training Cenire (CRIT) Location: TANGER Educational Sheet Number of Weekly Periods for Each Type of Training (lot and 2nd Grades) X General Complementing Teachers' Specializations Total Lessons T W P W Langu. P C PES Others Theor. Pract.Abbreviations Arabic - - - - - - - - T W i Tutorial Work French 32 144Y/ .1 16 - 16 4 3) 36 280 PW :Practical Work History-Oeography - - - - - - - - - - P C Physics-Chemistry = =- I PES t Physical Education and Mathematics 54 .18 18 24 - 1 24 21 171 Sorts I I ' - U.P i Use'Factor Physics-Chemistry 44 4 48 16 - 8 , 2 16 14 152 Natural Science - -- - - - - Total 130 166 66 56 36 9 T2 71 606 Number of Buildings Educational Facilities Needed Actual Differ. Actual 3IF 41 ( 1 2y ( 1)-(1) % o Classrooms 130 26 - - 9 54 - 219 7 11 + 4 57 Specialized Classrooms - 92 18 - 18 - 128 4 2 - 2 185 Practice Classrooms - - - - - - - - 71 2 2 0 100 Outside - - - - - 36 - - 36 - - - - Language Laboratory - 48 - 56 - 10 3 1 - 2 0o Science Laboratory - - 48 - - 48 2 2 0 70 Total 110 1 166 e 6 - 36 9 72 71 606 18 18 0 100- EnroRment Planned 197B7 Boarding No. of Students Request 3redit 79 Capacity Total per room Students . 720 506 Planned 500 8 Boarders 500 Supplement 220 4 Teachers . 20 Actual 720 4 Others4/ *-.. 23 Used T20 less than 4 1/ PW + T W. / Based or 15 neriods a week. / Of whom 10 are Morocoan. Administrative, boarding, domestic, maintenance, etc. staff. X Estimate