Zambia - First and Second Education Projects

Document of The World Bank FILE copy FOR OFFICIAL USE ONLY EEY Report No. 4508 PROJECT PERFORMANCE AUDIT REPORT ZAMBIA FIRST AND SECOND EDUCATION PROJECTS (LOANS 592-ZA AND 645-ZA) May 20, 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 LIST OF ABBREVIATIONS CIDA - Canadian International Development Association COSC - Cambridge Overseas School Certificate CSTB - Central Supply and Tender Board CTEVT - Commission of Technical Education and Vocational Training DTEVT - Department of Technical Education and Vocational Training EHC - Evelyn Home College of Applied Arts and Commerce ESC - Educational Services Center GRZ - Government of the Republic of Zambia HTTC - Higher Teacher Training College MOE - Ministry of Education NORAD - Norwegian Agency for International Development NORTEC - Northern Technical College NRDC - National Resources Development College PIU - Project Implementation Unit PTTC - Primary Teacher Training College SIDA - Swedish International Development Authority SNDP - Second National Development Plan (1972-1976) TDAU - Technology Development and Advisory Unit TTIs - Trade Training Institutes TVTC - Technical and Vocational Teachers College UNZA - University of Zambia ZIT - Zambia Institute of Technology 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 ZAMBIA FIRST AND SECOND EDUCATION PROJECTS (LOANS 592-ZA AND 645-ZA) TABLE OF CONTENTS Page No. Preface *......................................................... Basic Data Sheet .....................................................ii Highlights ........................................................... vi PROJECT PERFORMANCE AUDIT MEMORANDUM I. BACKGROUND AND SUMMARY OF PROJECTS .................... 1 II. PRINCIPAL ISSUES .................................... 5 Project Preparation ............................... 5 a. Secondary School Component (First Education Project) ....*..* ...... . ........................ 6 b. Technical Education (First Education Project) .. 7 c. University of Zambia (Second Education Project) 8 III. PHYSICAL IMPLEMENTATION OF THE PROJECTS ............... 10 Buildings .................................................. 10 Furniture and Equipment ...... ....................... .10 Disbursements and Costs .......................... 11 IV. EDUCATIONAL OUTCOMES ........................ ..... 11 V. SUPERVISION OF THE PROJECTS BY THE BANK .............. 13 VI. CONCLUSIONS........... .......... . ..................... 14 PROJECT COMPLETION REPORT: FIRST EDUCATION PROJECT (LOAN 592-ZA) 17 I. Summary and Recommendation from Project Experience .... 19 II. Introduction .................................... ..22 III. Project Background .................. .................... 23 IV. Project Implementation .................................. 28 V. Project Cost and Financing ........................... 36 VI. Project Operational Outcomes ......................... 39 VII. Bank's Performance .................***.................. 48 TABLE OF CONTENTS (continued) Page No. Annexes: 1. Implementation Schedule .............................. 49 2. Disbursement Graph .................................. 50 3. Calculation of US Dollar Cost of the Project . 51 4. Recurrent Expenditure 1971 to 1979 ................... 52 5. Educational Reform Proposals and Recommendations ..... 53 6. Enrollment Targets for Secondary School as Estimated . 59 7. Enrollments in Project Schools ....................... 60 8. Teachers in Secondary Schools - Demand and Supply .... 62 Appendix: Evaluation Report on Zambia World Bank Education Project ............................................. 63 PROJECT COMPLETION REPORT: SECOND EDUCATION PROJECT (LOAN 645-ZA) I. Summary and Recommendations .......................... 169 II. Introduction ......................................... 171 III. Project Background ................................... 172 IV. Project Implementation ............................... 174 V. Project Costs and Financing .......................... 182 VI. Project Operating Outcomes ........................... 184 VII. Bank's Performance ................................... 191 VIII. Conclusions .......................................... 192 Annexes: 1. Estimated and Actual Implementation and Disbursements ....................................... 195 2. Project Costs by Components .......................... 196 3. Unit Space Allocation and Cost Per Student Place 197 4. Disbursement Graph ................................... 198 5. Number of Employees by Industry and Major Occupational Category .............................. 199 6. Zambianization of the Labor Force 1965 to 1977 ....... 200 7. Growth of Full-Time Equivalent Enrollments by School .......................................... 201 8. Persistence of Zambian Secondary School Teachers in Service ......................................... 202 9. Student/Staff Ratios Compared ........................ 203 PROJECT PERFORMANCE AUDIT REPORT ZAMBIA FIRST AND SECOND EDUCATION PROJECTS (LOANS 592-ZA AND 645-ZA) PREFACE This is a Performance Audit Report of the First Education Project (Loan 592-ZA) and the Second Education Project (Loan 645-ZA) in Zambia, for which loans were approved in the amounts of US$17.4 million on April 8, 1969, and US$5.3 million on November 18, 1969, respectively. In June 1976, the Loan Agreement for the Second Education Project was amended to provide for the financing of physical facilities at the School of Agricultural Sciences out of savings available from the loan proceeds. As of July 11, 1979, US$16.7 million had been disbursed and US$0.7 million cancelled under Loan 592-ZA; Loan 645-ZA was completely disbursed by October 4, 1979.1/ The Audit Report consists of (a) a Project Performance Audit Memorandum prepared by the Operations Evaluation Department (OED), for which no field visit was undertaken, and (b) two Project Completion Reports (PCRs) prepared by the Eastern Africa Regional Office and dated June 1979 (First Education Project) and May 1979 (Second Education Project); both PCRs were prepared after a field visit. The PCR on the First Education Project draws upon a project evaluation report prepared by the Borrower's Ministry of Education in 1977. This report from the Borrower is attached. The audit memorandum is based on a review of the Appraisal Reports, No. PE-2A of March 1969, and No. PE-8A of October 1969; the President-s Reports No. P-680 and P-752 of March 26, 1969, and November 5, 1969, respectively; the amendment of the Loan Agreement for the Second Education Project dated June 7, 1976; the PCRs and material in the Bank's files pertaining to these two projects. Discussions were also held with Bank staff currently and formerly associated with the projects. The draft audit report was sent to the Borrower on November 22, 1982 for comment. No comments have been received from the Borrower. On the basis of this review the audit agrees with the main findings and conclusions of the PCRs. The audit memorandum, however, highlights (i) some problems of introducing the concept of diversification of secondary schools, (ii) the difficulties arising from major divergences of opinion held by the Borrower and the Bank Group about post-secondary technical education and training and (iii) the need for improved planning capabilities at the University of Zambia. I/ It will be noted that the auditing of these two projects has been con- siderably delayed. The main reason for the delay was staffing con- straints within OED's education section.  - ii - PROJECT PERFORMANCE AUDIT BASIC DATA SHEET ZAMBIA FIRST EDUCATION PROJECT (LOAN 592-ZA) KEY PROJECT DATA Appraisal Expectation Actual Total Project Cost (US$ million) 36.2 42.6 Overrun (%) - 17.7 Original Loan Amount (US$ million) 17.4 17.4 Amount Disbursed (07/11/79) - 16.68 Cancelled - 0.7 Repaid (to 06/30/82) - 2.11 Outstanding as of 06/30/82 (US$ million) - 14.38a Date Physical Component Completed 06/73 12/78 In Months Since Loan Signature (50 months) (116 months) Proportion Completed by Above Date (%) 50 100 Proportion of Time Overrun (%) - 132 Institutional Performance - Good Cumulative Estimates and Actual Disbursements (US$ million) FY69 FY70 FY71 FY72 FY73 FY74 (i) Estimated at appraisal 0.050 4.35 10.1 14.8 16.8 17.4 (ii) Actual disbursement 0 0 .80 5.38 8.97 (iii) (ii) as % of (i) 0 0 0 5.41 32.02 51.55 FY75 FY76 FY77 FY78 FY79 17.4 17.4 17.4 17.4 17.4 12.44 15.0 16.0 16,35 16.68 71.49 86.21 91.95 93.97 95.86b OTHER PROJECT DATA Original Item Plan Revisions Actual First Mention in Files - - 01/65 Government's Application - - - 03/68 Negotiations - - 02/69 Board Approval - - 04/08/69 Loan Agreement Date - - 04/11/69 Effectiveness Date - - 07/15/69 Loan Agreement Amendment Date - - 06/07/76 Closing Date 09/30/74 03/31/77 07/11/79 - 03/31/78 - Borrower Republic of Zambia Executing Agency Ministry of Education Fiscal Year of Borrower 01/01-12/31 Follow-on Project Name Second Third Fourth Fifth Education Education Education Education Project Project Project Project Loan/Credit Number Ln 645-ZA Ln 900-ZA Ln 1356-ZA Cr 1251-ZA Loan/Credit Amount US$5.3 US$33 US$13.3 US$25 million million million million Loan/Credit Agreement Date 11/20/69 06/06/73 01/17/77 06/82 /a Exchange adjustment of US$0.19 million included. /b on July 11, 1979 the amount of US$0.72 million was cancelled.  - iii - MISSION DATA Sent Month/ No. of No. of Man- Date of Mission B Year Weeks Persons Weeks Report Identification UNESCO 02-03/66 3 4 12 06/66 Pre-appraisal IBRD 01/68 1 2 2 03/68 Preparation UNESCO 02-03/68 3 4 12 03/68 Appraisal Bank 04-05/68 7 4 28 03/69 Total 14 14 54 Supervision-./ Supervision I Bank 03/70 1 2 2 05/70 Supervision II Bank 09-10/70 1 3 3 12/70 Supervision III Bank 02/71 1 3 3 03/71 Supervision IV Bank 09/71 1 3 3 01/72 Supervision V Bank 01/71 1 1 1 01/72 Supervision VI Bank 02-03/72 1 2 2 04/72 Supervision VII Bank 08/72 0.5 2 1 09/72 Supervision VIII Bank 10-11/72 4.5 2 9 01/73 Supervision IX Bank 06/73 1 1 1 07/73 Supervision X Bank 07/73 1.5 2 3 09/73 Supervision XI Bank 01/74 2 1 2 03/74 Supervision XII Bank 06-07/74 3.5 2 7 09/74 Supervision XIII Bank 03/75 2 2 4 04/75 Supervision XIV Bank 07/75 1 1 1 08/75 Supervision XV Bank 03-04/76 4 3 12 05/76 Supervision XVI Bank 09-10/76 3 2 6 11/76 Supervision XVII Bank 05-06/77 3.5 2 7 07/77 Supervision XVIII Bank 11-12/77 2.5 2 5 01/78 Supervision XIX Bank 05/78 2 2 4 07/78 Completion Bank 01-02/79 2 2 4 06/79 Total 39.0 40 80 CURRENCY EXCHANGE RATES Name of Currency: Kwacha Abbreviation: K Exchange Rates: Appraisal Year US$1.00 - KO.71 Average Exchange Rate of Disbursements: US$1.00 - KO.77 At the time of Completion Mission: US$1.00 - KO.77 ALLOCATION OF LOAN PROCEEDS (In US$) Original Actual Category Allocation Disbursement /b Construction works, including 6,240,000 10,471,660.91 fixed furnishings and fittings Improvement of buildings and 1,780,000 - sites Furniture 1,320,000 1,013,281.48 Professional services: architects, 810,000 1,430,699.79 engineers, quantity surveyors and clerks of work Instructional and other equipment 4,850,000 3,568,968.89 Imported Construction Materials 2,400,000 194,907.28 Cancelled - 720,481.65 Total 17,400,000 17,400,000.00 /a Includes work related to the supervision of other education projects in Zambia. /b As of June 30, 1979.  - iv - PROJECT PERFORMANCE AUDIT BASIC DATA SREET ZAMBIA SECOND EDUCATION PROJECT (LOAN 645-ZA) KEY PROJECT DATA Appraisal Expectation Actual Total Project Cost (US$ million) 7.4 7.5 overrun (%) - + 2 Original Loan Amount (US$ million) 5.3 5.3 Amount disbursed (06/28/79) - 5.3 Cancelled - - Repaid (to 06/30/82)(US$ million) - 0.52 outstanding as of 06/30/82 (US$ million) - 4.58/a Date Physical Component Completed 12/72 06/78 In Months Since Loan Signature (36 months) (103 months) Proportion of Time Overrun (%) - 186 Date Physical Component Completed under 03/78 02/79 06/76 Loan Agreement Amendment In Months Since Loan Signature (21 months) (32 months) Proportion of Time Overrun (%) - 52 Institutional Performance - Satisfactory Cumulative Estimates and Actual Disbursements (US$ million) FY69 FY70 FY71 FY72 FY73 FY74 (i) Estimated at appraisal 0.050 1.35 3.25 4.65 5.30 5.30 (ii) Actual disbursement 0 0 1.11 2.36 3.75 4.08 (iii) (ii) as % of (i) 0 0 34.15 50.75 70.75 76.98 FY75 FY76 FY77 FY78 FY79 5.30 5.30 5.30 5.30 5.30 4.24 4.4 4.6 4.71 5.30 80.00 83.02 86.79 88.87 100.00 OTHER PROJECT DATA Original Item Plan Revisions Actual First Mention in Files - - 01/65 Government-s Application - - 04/78 Negotiations - - 10/69 Board Approval - - 11/18/69 Loan Agreement Date - - 11/20/69 Effectiveness Date - - 05/05/70 Loan Agreement Amendment Date - - 06/07/76 Closing Date 08/31/73 12/31/74 06/28/79 09/30/75 03/31/76 03/31/78 03/31/79 09/30/79 Borrower Republic of Zambia Executing Agency University of Zambia Fiscal Year of Borrower 01/01-12/31 Follow-on Project Name Third Fourth Fifth Education Education Education Project Project Project Loan/Credit Number 900-ZA 1356-ZA 1251-ZA Loan/Credit Amount US$33 million US$13.3 million US$25 million Loan/Credit Agreement 06/06/73 01/17/77 06/82 Date /a Exchange adjustment of US$0.21 million included.  - v - MISSION DATA Sent Month/ No. of No. of Man- Date of Mission By Year Weeks Persons Weeks* Report Identification UNESCO 02-03/66 3 3 9 06/66 Preparation UNESCO 02-03/68 3 3 9 03/68 Pre-Appraisal Bank 04-05/68 2 3 6 03/69 Appraisal Bank 05/69 3 3 9 10/69 Total 11 12 33 Supervision/a Supervision I Bank 03/70 1.1 2 (a,b) 1.7 05/28/70 Supervision II Bank 09-10/70 0.9 2 (a,b) 1.6 12/28/70 Supervision III Bank 01-02/71 0.8 2 (a,b) 1.1 04/06/71 Supervision IV Bank 09/71 1.4 2 (a,b) 2.3 01/31/72 Supervision V Bank 01/72 0.3 1 0.3 01/10/72 Supervision VI Bank 02-03/72 1.2 3 (a,b,e) 3.6 04/07/72 Supervision VII Bank 10-11/72 0.9 2 (a,b) 1.6 01/12/73 Supervision VIII Bank 07/73 0.9 2 (a,b) 1.8 09/07/73 Supervision IX Bank 01/74 0.7 1 (a) 0.7 02/26/74 Supervision X Bank 07/74 1.9 2 (a,b) 3.4 08/23/74 Supervision XI Bank 03/75 0.8 2 (a,e) 1.6 04/10/75 Supervision XII Bank 07/75 0.8 1 (e) 0.8 08/20/75 Supervision XIII Bank 09/75 10.0 2 (a,b) 2.0 10/28/75 Supervision XIV Bank 03-04/76 0.6 2 (a,b) 1.1 05/04/76 Supervision XV Bank 09-10/76 1.3 2 (a,b) 2.6 11/11/76 Supervision XVI Bank 05-06/77 1.4 3 (a,b,e) 3.9 07/14/77 Supervision XVII Bank 11-12/77 0.7 2 (a,b) 1.4 02/02/78 Supervision XVIII Bank 05/78 1.1 2 (b,e) 2.2 06/20/78 Completion Bank 07-08/78 3.4 2 (a,b) 5.7 06/30/79 Total 21.2 37 39.4 CURRENCY EXCHANGE RATES Name of Currency: Ewacha Abbreviation: K Exchange Rates: Appraisal Year US$1.00 - KO.71 Average Exchange Rate of Disbursements: US$1.00 - KO.77 At the time of Completion Mission: US$1.00 - KO.77 ALLOCATION OF LOAN PROCEEDS (In US$) Original Actual Category Allocation Disbursement-/ Construction works, including 3,350,000 3,596,371 fixed furnishings and fittings Architectural and other technical 480,000 492,661 services Instructional equipment and 1,100,000 1,210,968 furniture Unallocated 370,000 Nil Total 5,300,000 5,300,000 Note: a - architect, b - educator, e - economist. * Estimated time spent on supervision of the second project only. /a As of July 31, 1979.  - vi - PROJECT PERFORMANCE AUDIT REPORT ZAMBIA FIRST AND SECOND EDUCATION PROJECTS (LOANS 592-ZA AND 645-ZA) HIGHLIGHTS Loan 592-ZA for the Zambia First Education Project provided US$17.4 million to help expand and improve secondary education, primary and junior secondary teacher training and the training of technicians and craftsmen for industry. It was hoped that at the secondary level, substantial diversifica- tion of the offerings would be effected. Loan 645-ZA for the Second Education Project provided US$5.3 million to assist the Government to meet the need for engineers and upper secondary school teachers, by extending and equipping the University of Zambia (UNZA), especially the Schools of Engineering and Education. Contributions of instructional equipment by bilateral donor agencies brought about savings of about US$1.0 million in the Second Project. Following a Government request, the Loan Agreement was amended in June 1976 to utilize these savings to strengthen the UNZA Agricultural Sciences School through constructing, equipping and furnishing a science laboratory and a building for the University Farm and constructing a staff house. Although physical facilities under both loans have been completed as planned, the educational programs of project secondary schools have not been fully implemented. The teacher training colleges have met their objectives. Completion of the Northern Technical College under the First Project was considerably delayed, and since it was not in operation at the time of the completion mission, outcomes could not be assessed. Overall enrollment at the University was far below the expected level of 5,000 students, with enrollment in the School of Engineering also below expectations. The School of Education met its enrollment target, but the very heavy demand from the public sector for university level graduates has attracted many potential secondary educa- tion teachers away from entering the teaching profession. In these two projects, certain shortcomings were noted. Similar shortcomings have been experienced in several other Bank-financed projects and efforts continue to be made to remedy the weaknesses. Within the context of these two particular projects, however, attention is drawn to the following: (i) the personnel involved in implementing the substantial reform of the secondary level curriculum (First Project) were not trained at an early stage of implementation (PPAM, paras. 18, 19 and 42); (ii) the period of preliminary studies before introducing a new construc- tion method for a large number of schools (First Project) should have been longer (PPAM, para. 28); - vii - (iii) greater consideration should be given during the design stage (First Project) to the repair and future maintenance of buildings and equipment (PPAM, paras. 28 and 30); (iv) the complexity of a country's first project in the Education Sector was not kept at a manageable size (PPAM, para. 19); (v) special attention was not given (Second Project) to the quality of secondary school graduates, especially their training in science and mathematics, when a project involves engineering studies at the third level (PPAM, para. 26); (vi) the logistics involved in the distribution and storage of furniture and equipment (First Project) were not organized before beginning the procurement process (PPAM, para. 32); (vii) the difficulty of training a sufficient number of practical subject teachers (First Project) was underestimated at generation stage (PPAM, paras. 21, 40 and 41); (viii) technical assistance, as an integral part of a project (Second Project) was not included, notwithstanding the evidence of planning deficiencies (PPAM, paras. 22, 25 and 43); and (ix) supervision missions (First and Second Projects) did not spend enough time monitoring the educational objectives of the projects (PPAM, paras. 42 and 43). - 1 - PROJECT PERFORMANCE AUDIT MEMORANDUM ZAMBIA FIRST AND SECOND EDUCATION PROJECTS (LOANS 592-ZA AND 645-ZA) I. BACKGROUND AND SUMMARY OF PROJECTS 1. Following a UNESCO Project Identification Mission to Zambia in February/March 1966, the Government asked for assistance in financing an education project. A pre-appraisal mission was sent by the Bank in January 1968, followed by a Project Preparation Mission in February/March 1968. As originally submitted to the Bank in April 1968, this proposed project comprised: (i) the construction of 20 new, and expansion of 56 existing, secondary schools; (ii) the construction of three new primary teacher training colleges and a new secondary technical school; and (iii) the expansion and improvement of a technical institute, a secondary teacher training college and the Schools of Natural Sciences and Engineering at the University of Zambia,.! as well as construction of new student hostels. The project was appraised in April/May 1968. 2. After appraisal and discussion with the Government, the University component was excluded, pending the recommendations of an advisory commission which was established to prepare a master plan for comprehensive university development. During appraisal, the three new primary teacher training col- leges proposed, and 11 of the 20 new secondary schools proposed were deleted in the light of manpower considerations, the Borrower's limited implementation capacity, and recent demographic and economic development trends. 3. As modified, the project therefore consisted of: (i) the con- struction and equipping of nine new secondary schools; (ii) the improvement, extension and equipping of 56 secondary schools; (iii) the extension and equipping of two primary and one secondary teacher training college; and (iv) the construction and equipping of a technical college. 4. During loan negotiations in February 1969, the Zambian delegation requested, and the Bank agreed, that the proposed loan of US$14.4 million be increased by US$3.0 million to cover the following additional items: (i) expansion and equipping of a secondary teacher training college in Kitwe and (ii) further improvements to the 56 existing secondary schools already included in the proposed project. In its final form, Loan 592-ZA, signed on April 11, 1969, provided US$17.4 million to finance the First Education Project. 1/ The University of Zambia is the only degree awarding institution of higher education in the country. - 2 - 5. In February 1969, the Government made another request for Bank financing for a project at the University of Zambia comprising the furnish- ing, equipping and expanding of: (i) the Schools of Engineering and of Education (ii) student hostels; and (iii) staff houses for caretakers and wardens..1 This proposal was appraised in May 1969. For this project, Loan Agreement 645-7, was signed on November 20, 1969 providing a loan of US$5.3 million. This Loan Agreement was amended in June 1976 to enable the Borrower to utilize savings of US$1.0 million to provide for the School of Agricultural Sciences of the University of Zambia (i) a science laboratory and2 ii) a building and one staff house for the University Farm at Liempe.-. The estimated cost was US$1.23 million, of which the loan funds were intended to cover the estimated foreign exchange amount of US$1.0 million. By assisting with the expansion of the Schools of Engineering and of Education, the Second Project helped the Government with its manpower shortages in three important areas: agriculture, engineering and secondary school teaching. 1/ Because of budgetary constraints the Borrower decided to reduce Uni- versity investments to the minimum requirement. This explains the exclusion of the initially contemplated School of Natural Sciences, the need for which had not been fully justified at the time. 2/ A well-advanced plan to develop the Natural Resources Development College at Lusaka into the School of Agricultural Sciences had been reversed by the Government. Thus, it became urgent to provide laboratory facilities at the Lusaka Campus (as well as buildings and equipment for the demon- stration farm) to be used, on a temporary basis, by the School of Agri- cultural Sciences before its relocation. - 3 - 6. The two projects, following amendment of the second, comprised: Boarding Teacher's Staff Project Item Places Places Quarters Houses First Project (Loan 592-ZA) a) 9 new secondary schools 6,890 - - - b) Improvement and expansion of 28,783 2,070 124 15 56 existing schools c) Additions to two primary 418 340 - - teacher training colleges d) Additions to two secondary 526 340 - - teacher training colleges e) Expansion of the Northern 321 80 - 5 Technical College Second Project (Loan 645-ZA) f) The extension (adding teaching 343 ) ) space, laboratories and staff ) ) offices) and further equip- ) ) ping of the School of ) ) Engineering of the University ) ) ) 960 - ) 8 g) The extension (adding teaching 502 ) ) space, laboratories and staff ) ) offices) and further equip- ) ) ing of the School of Educa- ) ) tion of the University ) ) h) Constructing, furnishing and 80 - - equipping of a science labora- tory and a building for the University Farm at Liempe; constructing a staff house. 7. Special covenants for the First Education Project required the Borrower to: (i) establish and maintain a project unit within the Ministry of Education; (ii) employ qualified and experienced clerks of works and firms of architects, engineers and quantity surveyors; and (iii) initiate and implement appropriate training programs for selected personnel, to provide a sufficient number of school principals, inspectors and regional education officers for the project schools. 8. In a supplementary letter to the Bank concerning the First Project, the Government stated that its main educational objectives were expanding and improving the Zambian educational system and relating it more closely to overall economic and social development, including: (i) improving primary school instruction; (ii) diversifying curricula at the secondary level to include industrial arts, agriculture, commerce and home economics; (iii) strengthening the teaching of mathematics and science; (iv) rapidly expanding secondary school teacher training with the aim of filling all teaching posts with Zambians by 1980; and (v) improving opportunities for technician training. In order to implement the First Project effectively the 'Government proposed to: (i) strengthen educational planning and supervision; (ii) formulate planning through modern statistical methods and improved coordination between the Ministry of Education and other government agencies; (iii) support the diversification of secondary curricula by providing specialized teachers in industrial, agricultural and other fields of pre-vocational secondary educa- tion; (iv) continuously update pre-vocational educational content to keep pace with manpower needs (with special attention to rural areas); and (v) retrain primary school teachers on an in-service basis. 9. The Second Education Project was to assist the Schools of Engineer- ing and Education to expand within the framework of the then recently estab- lished University of Zambia (UNZA). Special covenants for the Second Project included: (i) the establishment of adequate planning procedures within the University and appointment of a qualified planning officer, and (ii) the preparation, within two years of Loan Agreement signing, of an architectural master plan covering all elements of University development for a projected enrollment of 5,000 students. 10. The projects encountered severe problems during implementation. An economic recession caused by falling copper prices in 1971/72 necessitated strict currency control measures and the enforcement of an import licensing system which hampered the procurement of essential construction materials. On occasion, the Government failed to provide the necessary counterpart funds. The closing of the Benguela railway and the curtailing of government purchases of steel products, glass, sanitary wares, pipes and fittings from countries in Southern Africa aggravated the already severe supply problems. The financial collapse and subsequent need to reorganize one of the major construction firms responsible for three groups of schools under the First Project also brought about considerable delays. In addition to difficulties caused by the economic recession, the Second Education Project experienced specific imple- mentation problems caused by: (i) a succession of three different project - 5 - directors; (ii) the continuous lack of key staff (19 months without an accountant and short-term service of a procurement officer); and (iii) the defaulting of a prime civil works contractor through his failure to complete specified items (including remedial work), and the subsequent retendering required. 11. The original closing date of the First Project was September 30, 1974. In February 1973, the Bank agreed to extend the closing date by two and a half years to March 30, 1977. At the same time, some reductions and cost saving measures were adopted. This entailed, in the case of the second- ary schools: (i) a reduction of circulation space and ceiling heights; (ii) the deletion of covered walks and verandas; and (iii) cheaper wall designs. In the case of the teacher training colleges, it entailed (i) a change from three- to one-storied hostel buildings at the primary teacher training college at Chalimbana and (ii) the deletion of a common room at the secondary teacher training college at Kabwe. The closing date had to be extended twice again before the project was completed. The loan account was finally closed on July 11, 1979, when US$0.7 million was cancelled. This was a 132% time overrun from the original estimate. The closing date of Loan 645-ZA, originally August 31, 1973 was extended four times, with final closure on 'June 28, 1979. As of that date, US$5.3 million equivalent had been dis- bursed, including the balance of US$1.0 million used for the construction of additional facilities for the School of Agricultural Sciences. The projects have been completed. II. PRINCIPAL ISSUES Project Preparation 12. In 1964, five months after Independence, the Zambian 'Government decided to proceed rapidly with quantitative expansion of education. UNESCO had completed a study of education in Zambia and recommended that educational expansion at the secondary level be linked to training manpower in sufficient numbers to enable Zambia to develop its economy, fill administrative posts and provide teachers for its schools. Studies conducted by FAO and UNDP/ILO recommended planned secondary school expansion with outputs related to man- power needs. 13. The'Government planned to build 27 new rural secondary schools with academic streams based on the Cambridge Overseas "0" Level examinations and requested that the Bank consider financing such an education project. After a short visit to the country and discussions with the Government officials, it was decided by the Bank that: (i) it was not advisable to move rapidly on the basis of purely secondary academic streams without the possibility of some form of diversification; (ii) the turnover and costs of resorting extensively to expatriate teachers on two- and three-year contracts needed further study. However, the Bank felt that, if a sound plan for diversification of the secondary school curriculum and providing a supply of teachers could be worked out, a viable project would be possible. Following further discussions with the Government, it was agreed to send a project preparation mission to Zambia. - 6 - 14. In the absence of a comprehensive education plan, the sending of a preparation team proved to be a wise decision. The Ministry's initial per- ception of this mission was that it generated delays in obtaining Bank financing and in launching the Ministry's programs and that it represented an attempt by the Bank to influence unduly the Government's educational policy.1/ T', Ministry officials later acknowledged that the preparation effort was worthwhile and helpful in stimulating the Ministry to think about fundamental educational problems. (a) Secondary School Component (First Education Project - Loan 592-ZA) 15. The Government's initial request to the Bank was for 20 new second- ary schools, but the UNESCO preparation team advised instead, the expansion of existing schools on the basis that: (i) an extension of existing schools could be completed within a short period of one year; (ii) construction of new schools was slow and costly; and (iii) there was a shortage of building capac- ity in Zambia at this time. The mission also proposed certain changes in policy and practice in the school system which would assist the Government in achieving its enrollment target of 84,000 students by 1974. 16. In order to promote more intensive use of facilities the mission suggested that the Ministry of Education (i) increase the class size from 35 to 40 students; (ii) increase weekly teaching periods from the existin 40 to between 50 and 60; (iii) introduce the rotating use of classrooms;2 (iv) introduce double shifts in the dining halls; (v) adopt double bunking in boarding facilities in all Forms from I to IV (grades 7 - 10) and (vi) require that students within walking distance be enrolled as day students with a mid-day lunch provided. In addition, staff housing was to be limited, and each teacher's house was to be shared by between two and three unmarried expatriate teachers. 17. The preparation mission further proposed that (i) the structure of the pri ary and secondary school system should be changed from the existing 7:2:3F to 7:3:2 to provide an extra year of schooling for junior cycle students, to make them more trainable for middle level positions; (ii) the secondary (especially lower cycle) curricula and syllabi be made more "prac- tical" in scope and content; and (iii) the existing streams of the senior secondary cycle - general, vocational and academic - be changed to delete the general stream, move from a vocational to a pre-vocational technology stream 1/ The Borrower's Evaluation Report indicates on page 108 that the Bank's "guardianship" was unacceptable and that the Bank acted "by dictating rather than advising." 2/ Rotating use of classrooms means that classes do not have a permanently assigned "homeroom" which then remains empty when these classes go into the laboratories for example; therefore, at any given time, there are less vacant classrooms under this system. 3/ Seven years of primary, two years of junior secondary and three years of senior secondary schooling. - 7 - and divide the academic stream to emphasize mathematics and science on the one hand, and arts and languages on the other. Nationwide curricula were advocated which included studies in woodwork, metalwork, technical drawing, domestic science and agriculture, and, in some appropriate locations, com- mercial subjects. 18. A number of problems prevented smooth implementation of the project. Headmasters of project schools could not make the necessary scheduling ar- rangement because they lacked familiarity with the programming complexities of the rotating use of classrooms and the diversified program. Weekly class periods were kept at 40. The practice of double bunking and the use of double shifts in dining halls were introduced. Urbanization of the catchment area of some project schools proceeded at a slower pace than originally expected, and as a result there were also fewer day students than anticipated. This created a need for the Government to provide more boarding facilities. As married Zambian teachers increasingly replaced unmarried expatriate teachers, the sharing of staff houses became less practicable, and a shortage of staff housing developed. The Bank tried to draw the Government's attention to the high recurrent costs already resulting from several thousands of boarding places in project schools (estimated by the Bank to be about US$3.2 million annually) and advised against incurring the even higher recurrent costs entailed in adding more boarding places and staff housing. 19. Problems arose during implementation, partly because the practical difficulties of introducing complex changes into the education system had been underestimated during project preparation. The problems attendant on the rapid replacement of expatriate headmasters by Zambians were recognized at the time of project preparation, as were the lack of practical subject teachers and the unfamiliarity of the educational leadership with the new concept of diversification at the secondary school level. However, no technical assis- tance was included in the project to train key personnel to implement the new programs. The Bank also should have borne in mind the potential for diffi- culties in a first effort of such a large scale. A project of a smaller size would have been more manageable for an inexperienced project unit. There is no doubt that the major problems encountered with procurement, storage and distribution of equipment and furniture were compounded by the size of the venture. (b) Technical Education (First Education Project - Loan 592-ZA) 20. At the time of project preparation, the Northern Technical College, which was being considered for inclusion in the project, was the highest level of technical training institution (below the level of the University) in engineering and allied occupations in the country. It had established close connections with industry throughout the country, and the bulk of its student body comprised apprentices and other students attending "block-release" or "sandwich" courses.!. A considerable number of part-time day and evening courses aimed at craft and lower technician levels were in operation, and higher level technician courses were being planned. 21. After project appraisal but prior to loan signature, a CoTission for Technical Education and Vocational Training was established,2 which proposed to introduce certain changes in the technical college which would have an impact upon the project, including: (i) new pre-employment college- based courses requiring about 36 weeks of study per year and 12 weeks of industrial experience rather than the industry-based courses of six weeks classroom instruction with the remainder in industry as envisaged under the project; (ii) an enrollment capacity of 700 (full boarding) as opposed to original project plans for 660 (400 of which would be boarding); and (iii) the transfer of telecommunications, electronics, building, mining and civil engineering courses to the newly created Zambian Institute of Technology. On grounds of cost, the Bank was opposed to these changes and to the creation of a new institute and held discussions with the Government on these issues for four years before approving the request for modification of the project. As a result, there was a costly delay in terms of the loss of expected output of trained technicians, industrial arts teachers for the secondary schools and other trained teachers to replace the expatriates. (c) University of Zambia School of Education (Second Education Project - Loan 645-ZA) 22. The deficiencies in planning for University development were evidenced during project implementation in several ways. In the first place, the use of certain project facilities was altered and so reduced the possi- bility of achieving the educational objectives of the project. This is illustrated by: 1/ These two terms are used to denote employees who are released from their jobs for periods of time to attend classes during the regular working day. "Block-release" generally denotes a longer span of time away from the job. With "sandwich" courses, students spend shorter periods of time in the work situation and alternate theoretical study and work experience. 2/ The Commission actually had been established in 1968 (before negotiation of the Project) as a parastatal semi-autonomous body with the responsi- bility for organizing and administering all technical and vocational training. This de facto reorganization was mainly supported by the Canadian International Development Association (CIDA). - 9 - (a) the fact that in the School of Education there has not been 1 specific plan to develop the television studio into a media center1 for the study and development of more effective teaching methods, as was envisaged in the project. Instead, the handing over, without consultation with the Bank, of the television studio to the Computer Center (PCR 2, para. 4.27), after completion of the School of Education facilities, deprived the pre-service and graduate programs of the School of Education of these facilities;!2 (b) the allocation of School of Education project facilities originally earmarked for the crafts and music centers to the Manpower Research Unit (PCR 2, para. 4.27). This had two direct consequences: no immediate steps were taken to train the specialist teachers of music and crafts. As a result of the lack of music teachers, this portion of the diversified curriculum was not implemented. As for the teaching of crafts, it was only carried out in schools where teachers were available. Hence, the enrichment provided by those creative fields had to await alternative training arrangements in one of the secondary teacher training institutions; and (c) the allocation of School of Education facilities in part to the Correspondence Studies Department. 23. Further, the common room concept, which was to have provided one common room for each "hpuse comprising groups of four hostel units, was never applied as intended.-1 The development of an extra-curricular program with a series of well-programmed cultural and social activities is essential to the complete growth and development of University graduates, but the University never took steps to utilize the facilities intended for this purpose. 24. Finally, the School of Agricultural Sciences still lacked a per- manent base (at the time of the PCR mission); there was a shortage of places in the School of Natural Sciences, which services other schools of the Uni- versity, and adequate space for the Department of Correspondence Studies was not planned for. 1/ The Region notes that although the media center was not developed as envisaged, micro teaching techniques were introduced using inexpensive portable TV sets. This audit does not doubt the usefulness of the micro teaching approaches but considers that the aborted media center would have had a wider function including, but not limited to, micro teaching. 2/ With the high wastage rates of repetition and drop-outs at all levels of education in Zambia, the improvement of the instructional process must be considered very important. 3/ However, the hostel buildings were completed, fully utilized and well- maintained. - 10 - 25. The audit supports the comment in the PCR for the Second Project (para. 6.14) that the Bank should have been inducing the University to review its own planning process in the early stages of project implementation. With closer monitoring of the project, the Bank could have identified critical points and assisted in obviating some of the difficulties which could have been foreseen, for example, those experienced by the University with equipment procurement and project accounts. 26. The Bank also appeared to give inadequate attention, during project generation, to the problem that woul be created if the numbers of qualified secondary school science graduateal entering the science-oriented schools of the University proved to be insufficient. III. PHYSICAL IMPLEMENTATION OF THE PROJECTS Buildings 27. While the secondary schools built under the First Project were satisfactory, a lack of consultation with educators resulted in certain shortcomings in the design and reduced the functionality of certain areas. In the case of the Second Project, where facilities for the Schools of Education and Engineering, as well as student hostels, were to be constructed, it is noted that construction certificates were not issued until June 1978, some five and a half years after the buildings had been accepted as "practically complete." Remedial works, which proved necessary, account for the time gap. The science laboratory for the School of Agriculture, however, was reported to be of good quality and was delivered only 11 months later than anticipated. 28. Problems in the maintenance of buildings deriving from poor con- struction and design were also evident in the First Project. In part, insufficient time for preliminary studies was a cause, but it is also noted that headmasters need special orientation in their training if they are to adequately supervise maintenance activities of the physical plant, as differ- ent from maintenance of equipment. In the Second Project, maintenance respon- sibilties were vested in the University's Maintenance and Repair Staff and were somewhat better organized although day-to-day problems still arose. Furniture and Equipment 29. Insofar as furniture was concerned, losses and heavy damage were experienced in the First Project. Reasons given were unsuitable design, poor construction and too much flexibility in an effort to encourage competitive bidding. In the case of the Second Project, the major problems experienced were with movable furniture which proved unsatisfactory for varied teaching situations. 1/ The First and Third Education Projects were meant to contribute undoubt- edly, to some extent, towards increasing the supply of such graduates. - 11 - 30. On the equipment front, while most of what was procured under the First Project was generally of good quality, there were inadequate and unsuit- able storage facilities. This caused some deterioration. In addition, some items were too sophisticated and led to further maintenance and repair diffi- culties., Some of the equipment for the Second Project was expected from other aid agencies but there were delays in this connection and a lack of contin- gency plans further affected timely implementation. Disbursements and Costs 31. Disbursements were slow at the beginning of the First Education Project because of delays in implementation and because of services and financial aid provided by the Norwegian Agency for International Development. The availability of bilateral funds made disbursements to some extent less urgent. Disbursements reached only about five percent by the original closing date (September 30, 1974), but rose to about 90% in mid-1977. 32. Implementation delays brought about slow disbursements during the early stages of the Second Project as well, but by the original closing date (August 31, 1973), disbursements reached 70%, and by the end of 1975, 80% of the proceeds had been disbursed. After the Amendment of June 1976, the loan was fully disbursed by September 30, 1979. 33. For the First Education Project, actual total costs of US$42.6 million, some 23% over appraisal estimates of US$36.2 million, are reported. The relatively low cost overrun of about 23% for the secondary education schools was attributed to measures being taken to offset rising construction costs by reducing some construction items in the early phases of project implementation. 34. In the Second Project the actual project costs of US$6.32 million, reflect an underrun of 17% (compared to US$7.38 million). Savings in this project amounted to about US$1.0 million equivalent, and were attributed to the use of more economical designs and the contribution of equipment by bilateral agencies. The cost of additional components under the amended Loan Agreement amounted to US$1.19 million, corresponding in this case to an overrun of about 20%. The shortfall was financed by the Government. IV. EDUCATIONAL OUTCOMES 35. The First and Second Education Projects were designed to (i) expand and enrich the secondary school curriculum by introducing the comprehensive diversification concept, (ii) train teachers for primary and junior secondary schools, and (iii) enhance opportunities for post-secondary technician level training, engineering and teacher training studies at the university level. 36. Despite some achievements under the First Project in terms of improving the quality and relevance of secondary education, many problems and deficiencies remain (PCR 1, para. 6.03). The secondary school facilities - 12 - under the First Project were provided as planned, and the classrooms, labora- tories, workshops and other areas were being utilized (with the exception of the assembly halls). The quantitative targets in project secondary schools were met, but the educational programs were not fully implemented and more time will be needed for the schools to begin to function efficiently (PCR 1, para. 6.04). The objectives of the practical subjects program -ere not clear to school principals and teachers, and the content and teaching methods were not adapted to achieve a better balance between theory and practical appli- cations. The serious shortage of teachers in some practical subjects, lack of funds for consumables, shortage of textbooks and the curtailment of practical subjects by some school principals, severely reduced the effectiveness of the diversified secondary school curriculum. It is too early to assess the impact that the practical pre-vocational studies are having upon students in assist- ing them to make more informed choices regarding future employment and post- secondary education. 37. The teacher education programs under the First Project were reori- ented and reorganized to provide better qualified teachers to meet the demands of the broadened curricular offerings of the project secondary schools. The secondary teacher training colleges achieved their quantitative output and have increased the supply of junior level teachers. The primary teacher training colleges provided both a stronger pre-service program for future teachers and upgrading programs for in-service teachers. The expected output of primary education teacher graduates was achieved, but the target set for the retraining of teachers in-service will require more time (PCR 1, para. 6.12). The extension of the School of Education under the Second Project did not contribute, to the extent planned, to the external productivity of second- ary school teacher training, as many of those trained as teachers went into other employment (PCR 2, paras. 6.06-6.07). Further, it appears that there are no programs preparing senior secondary teachers for teaching practical subjects. 38. The expansion of the Northern Technical College under the First Education Project was delayed. No activities had yet been held in the facil- ities and therefore there was no basis on which to assess its impact upon post-secondary technical education and training (PCR 1, paras. 6.13-6.16). Nevertheless, this institution will ultimately provide access to higher level training for qualified secondary school leavers and, in time, should provide an incentive to secondary school students for greater interest in the pre- vocational studies of project secondary schools. The College met its target enrollments only partially by providing a technical education program for 339 students and craft courses for 176 persons, making a total of 515 students.y 1/ The revised target enrollment (1973) was 700; there were 682 students in 1975. As the PCR explains, the low enrollment since 1976 is caused mainly by a lack of recurrent budget allocations for students- accom- modation and training. - 13 - 39. The expansion of the School of Engineering under the Second Educa- tion Project fell short of its enrollment goals, as did the School of Mining Engineering which also uses the facilities of the Engineering School. In addition to low enrollments, the School of Engineering continues to experience a high rate of failures and drop-outs. Committees have been appointed to study the problems, but the School appears to be reluctant to establish remedial courses which might assist in reducing wastage. 40. The Special Covenants of the Loan Agreement in the First Education Project were satisfactorily fulfilled, although secondary teacher training in practical subjects was considerably delayed. However, the educational objec- tives of the Government stated in a side letter will need more time to be fully implemented. The diversification of secondary school content has not been firmly established in project schools. The teaching of mathematics and science has not been significantly strengthened at secondary level and poses severe problems for entrants to post-secondary institutions. Secondary teacher output from the colleges has not reached a level sufficient to replace expatriates at the rate anticipated. This goal will not be achieved either, until salary adjustments are made commensurate with the higher level of education attained by University trained secondary school teachers. 41. With regard to the Second Education Project, attention is drawn to the deficiency in the planning capability of the University, which was not strengthened during the project, and remains a major weakness (PPAM, para. 25). V. SUPERVISION OF THE PROJECTS BY THE BANK 42. The First Education Project was supervised by 19 missions but in only a few cases were members of the mission able to devote full time to the supervision of this project. Within about ten months of the signing of the First Education Project in July 1969, a Second Education Project was launched. This was followed by a third one in June 1973, and a fourth in early January 1977. The fact that there were, at any given time, at least three education projects at some stage in the project cycle, meant that missions could rarely focus on the problems of a single project. Only the monitoring of quantita- tive objectives in the First Education Project was focused upon, but the large number of institutions, their distribution throughout the country and the difficulty of access, indicatep that supervision time was insufficient to make even periodic site visits.T! Bank staff did not identify the problems encountered in introducing the new concept of diversified secondary education and advise on the necessary training for teachers in the early phases of implementation. Coordination between agencies providing technical assistance 1/ The Region notes that constraints deriving from budgetary and manpower allocations sometimes prevent as intensive supervision as may be neces- sary or desirable. - 14 - on technical education and training, the respective Ministries, the newly- created Commission on Technical Education and Vocational Training and the Bank Group was not well enough planned or developed. 43. The 18 missions which supervised the Second Education Project were also inrifficient to monitor the progress of educational developments during project implementation. However, the University was better able to deal with these problems (PCR 2, para. 4.28). The idea of preparing a Univer- sity Master Plan for presentation to the Bank early in the project resulted in a strong concern on the part of the Bank for immediate and long-range planning by the University. This concern, however, was not translated into close supervision by the Bank, and the University met its obligation to prepare a Master Plan only partially. The intended upgrading of the University's planning capability did not materialize and this is unfortunate especially as in 1979, the Government announced major changes in higher education which would necessitate a substantial review of the plan prepared earlier. Indeed, future development of the institution could well depend upon significantly improved planning capability. VI. CONCLUSIONS 44. In the absence of a comprehensive education plan, a pragmatic approach was adopted for project design, but eventually, on the basis of a long generation period during which Bank Group and UNESCO exchanged views with the Government, two successive projects resulted, which were reasonably successful (PPAM, paras. 13-17, and 36-38). The First and Second Education Projects had educationally sound policy objectives and were designed to assist the Zambian educational system become more responsive to the changing needs of the country. Some progress was made in this regard, through the introduction of a three-stream upper secondary school system, providing opportunities for students to make more informed choices on career interests. The modern, better equipped and better staffed project secondary schools have already attracted sufficient numbers of students. The primary teacher training colleges have strengthened their pre-service training programs, have retrained a sizeable number of teachers in-service and are continuing this upgrading process. The secondary teacher colleges have increased the supply of teachers for the junior cycle of the secondary schools. The Schools of Education and Engineering have expanded their facilities and, although at the time of the Completion Mission, Engineering was under-enrolled, both schools are equipped to move forward with their planned development. 45. Implementation was extensively delayed not only by an economic recession and lack of counterpart funds at critical periods, but also by such unanticipated events as the closing of the Benguela Railway and the Government's curtailing of purchases, particularly supplies for the building industry imported from countries in Southern Africa (PPAM, para. 10). As for project management (PPAM, para. 10), both PIUs were plagued by lack of key staff and rapid turnover of those in post. - 15 - 46. Institution building, insofar as the establishment of a permanent implementation capacity in the Ministry of Education is concerned, was not envisaged, and the opportunities to use the PIU as a training ground for Zambian co nterparts were not utilized in either the First or Second Education Projects.' In retrospect, it is clear that insufficient attention was paid during project generation to ensuring provision of an adequate project imple- mentation capacity. Nevertheless, the performance of the PIUs was creditable in that they brought the projects to successful completion. Shortcomings were encountered in (i) the attainment of manpower objectives, (ii) the maintenance of buildings, furniture and equipment, and (iii) building up the planning capability of the University (PPAM, paras. 22, 28, 30, 38 and 39). Consider- able problems were also experienced in relation to (i) equipment/furniture procurement, in that the logistical problems related to such a large project had not been anticipated and (ii) coordination between the agencies providing technical assistance on technical education and training (PPAM, paras. 21, 30 and 42). 47. The experience with these education projects emphasizes the impor- tance of: (i) ensuring a strong Bank supervision/monitoring function, particularly at critical points in time during the implementation process (PPAM, paras. 42 and 43); (ii) providing required technical assistance, in particular to strengthen the planning capabilities of major project institutions (PPAM, paras. 22, 25 and 43); and (iii) including both staff development training and new approaches to school organization to support a major curricular reform (PPAM, para. 42). 48. Now that the projects have been completed there is a need for better coordination and articulation of education at various levels. Follow- on education projects have been designed to assist the Ministry of Education accomplish this task. 1/ For the First Education Project, the PIU was vested within the Ministry of Education and received from NORAD (Norwegian Agency for International Development) some of the consultants fees, and several Norwegian PIU key staff and supervisory engineers. In the case of the Second Project, the PIU staff was vested in the University of Zambia.  - 17 - PROJECT COMPLETION REPORT ZAMBIA - FIRST EDUCATION PROJECT LOAN 592-ZA June 14, 1979 (Revised April 30, 1982) Education Projects Division Eastern Africa Regional Office  - 19 - I. SUMMARY AND RECOMMENDATION FROM PROJECT EXPERIENCE 1.01 This First Bank-financed Education Project in Zambia spans a period of thirteen years from the first identification stage in March 1966 to a final closing in March 1979. During these years the country has gone through major social, economic, and political changes. In education, very significant quantitative advances have been made, but the qualitative improvements have not kept pace. During the implementation of this project, three new Bank- financed education projects--partly continuing the objectives of the first--have been started and a great number of bilateral and multinational donors have also provided support to the education sector, contributing to its develop- ment. Nevertheless, the First Education Project has played a major role in assisting the education system in Zambia. 1.02 During the phase of project generation, there were several differ- ences of opinion on sectoral policy between the Government and Unesco and the Bank, specifically with regard to the provision of boarding and staff housing. The Government noted that the need for financial support to the sector made it yield to pressure from the Bank concerning the content of the project involving basically the reduction in facilities for boarding and staff housing. By the time of loan negotiations, the Government and the Bank were, however, in full agreement on the content of the project. 1.03 The size and complexity of the project and the ambitious imple- mentation time span established at appraisal coupled with the initial lack of experience, of both the Bank and the Government in organizing such a project and the ensuing financial constraints in the country have been major factors in the difficulties experienced during nearly ten years of implementation. Also, several changes of project directors took place during a period when the project particularly needed strong direction. 1.04 From hindsight, the decision made to adopt a standardized and industrialized type building system, may not have been the best one. The building system, although rational from a planning point of view, was not as successful as expected due to changing country conditions which created difficulties in the manufacturing of building materials and later shortages resulted in construction delays and additional reliance on imported building materials. 1.05 The considerable delays in construction were directly related to the economic and political situation including (i) the fall in the price of copper which resulted in the Government's inability to timely provide counter- part funds and (ii) the transport problems resulting from the closing of the border with Rhodesia and conflicts in Angola and Mozambique. Not only did these events slow the provision of Government counterpart funds, but they created foreign exchange and liquidity problems for most contractors, and resulted in serious shortages of materials and extreme transportation diffi- culties. - 20 - 1.06 Problems were experienced with furniture at almost all stages of procurement. Weak and overly sophisticated designs, generally poor quality, difficulties in local assembly resulting from the decision by Central Supply and Tender Board (CSTB) not to approve an award of contract for tl- local assembly to the manufacturer of the furniture, lack of storage facilities and delivery coordination, contributed to a difficult situation with respect to this component. Equipment, although in certain instances overly sophisti- cated for its proposed use, is generally of good quality and functional. In terms of coordination of logistics, storage and delivery, similar problems affected the procurement of both equipment and furniture; they can be attri- buted largely to the complexity and size of the project and the lack of adequate supervisory staff. 1.07 Considering the length of the implementation period, the cost of the project has remained within manageable limits and the increase of 23% over appraisal estimates in Kwacha terms is remarkably low when considering the steep rise in building costs during the latter half of the project. Cost consciousness on the part of the consultants and the project unit, certain reduction in areas and favorable tender prices until about 1972 con- tributed to hold down costs. The continuation throughout the implementation period of grants from NORAD for architectural/engineering professional ser- vices, key project unit staff and site supervisors also greatly assisted. 1.08 The attainment of educational objectives received inadequate atten- tion during the initial stages of implementation. Much more emphasis should have been placed on training of staff in the application of the curriculum reform and on technical teacher training early in the project. The Bank's supervision missions spent considerable time on the physical implementation aspects of the project, which initially involved the most serious implemen- tation problems. The development of the planning capacity of the MOE has been fairly successful. A general indication of this is the commendable work the MOE has performed in preparing the Educational Reform Proposals and Recommendation in 1977. 1.09 The overall quantitative targets for expansion of the total sec- ondary school system and enrollment target for the project secondary schools reached 96% with enrollment still progressing in 1978 (para. 6.05). The project seems to be successful in introducing practical studies in the curriculum, especially at the junior secondary level, but not to the extent envisaged during appraisal (paras. 6.06-6.07). Quantitative improvement has not been up to expectations and the low output of Form V students with good credentials in mathematics and science is still a source of concern for higher education institutions and for employers. The outcome from the teacher training components of the project is satisfactory in quantitative terms, but there is still some doubts about the quality of teachers (paras. 6.09-6.11). The primary teacher training programs have been able to keep pace with the considerable increases in pupils, increasing the number of teachers between 1970 and 1977 by 6,600, the percentage of fully trained teachers from 85.7% (1970) to 86.6% (1977) and decreasing the pupil:teacher ratio from 52.3:1 (1970) to 47.4:1 (1977). The technical education component cannot be assessed in education terms as the new facilities have just been completed and the first batch of students have just been enrolled. - 21 - RECOMMENDATIONS AND LESSONS LEARNED 1.10 The project was one of the Bank's earliest and largest operations in support of the diversification of secondary school curriculum. Several lessons have been learned and have been useful in implementing later projects in Zambia and elsewhere. 1.11 The first and most important lesson relates to project size in relation to absorptive capacity. The project, which included the construction and extension of 65 secondary schools, one technical college and four teacher training colleges, is now considered by both the Bank and the Borrower to have been too large and ambitious for a first operation of this type in the country. Lessons learned in this respect have been applied to the Second and Fourth Education Projects in Zambia which include only a few discreet components. 1.12 Another important lesson relates to the introduction of a standard- ized construction system using prefabricated elements and to the maintenance of buildings and equipment; although some savings were undoubtedly made by applying the same standard design and method of construction to all secondary schools, the shortcomings of the design and technology were also multiplied. For example, hindsight indicates that the construction system and availability of materials used could have been adapted more to local conditions and capa- bilities of local construction firms and materials suppliers. The lack of skilled labor was one of the criteria used by the consultants to support the development of an industrialized system whereas simpler construction based on local materials and technology would have relied even less on skilled workers and would have provided more employment for unskilled labor. Greater consideration should also have been given during the design stage to the future maintenance, repair and replacement of building components (especially of prefabricated wall components) and including maintenance of equipment which is, and will be for a long time, a problem in Zambia. Lessons learned in this respect have been applied with success in the design of facilities of the Third and Fourth Bank-assisted Education Projects. A maintenance program has been prepared by MOE and is awaiting adequate financing. 1.13 Other lessons apply to teacher training and curricula: teacher training programs should have been scheduled well ahead of school building programs, as the supply of trained teachers is crucial to the introduction of new courses and curricula. In the case of this project, the belated definition of Teacher Training and curricular arrangements has had an adverse effect on project outcomes in the first few years of operation. Such a new curricula should be introduced gradually and only after the headmasters and staff have been properly briefed and trained in its application. Emphasis has been placed, somewhat belately, on the project's Teacher Training aspect and output is now satisfactory; however, further quality improvements are needed. 1.14 As regards project implementation arrangements and procedures, the size and complexity of the projects must be carefully assessed so that the PIU is adequately staffed, sufficient facilities for its work provided and counterpart staff trained. It is, however, difficult to foresee events such as those encountered in this project, in particular the inability of the Borrower to timely provide counterpart funds. Future education projects - 22 - are to be implemented by a project unit established under the building branch of the Ministry of Works. This unit is successfully implementing components of the Third Education Project and all components of the Fourth Education Project. Experience wi ' Evaluation Report Prepared by Borrower 1.15 The Evaluation Report prepared by the Ministry of Education in 1977 is reproduced in Appendix to this PCR. Although based on information avail- able up to mid-1976 and devoted almost entirely to the physical aspect of the Project (as well as to a large component of the follow-up Third Education Project), this very detailed document is indicative of the high quality of the work of the PIU and of the MOE Planning Unit, particularly in the latter period of project implementation. Its critical remarks have helped the planning of the Fourth Education Project financed in 1977 and of the Fifth Education Project now in its preparation stage. The data and analysis in- cluded in the Evaluation Report have greatly assisted the preparation of the PCR. On many points the PCR and the Evaluation Report reach identical con- clusions. Where there are differences, these are either of emphasis or based on data not yet available at the time of the preparation of the Evaluation Report. II. INTRODUCTION 2.01 This PCR was basically prepared as a desk-study. Collection of most recent education statistics was done during the last Bank supervision mission for the project during January 17-February 2, 1979. The members of this mission were restricted in travelling outside Lusaka because of the uncertain political situation in the country, but reliable information about all project schools was received from the PIU Director. Previous supervision missions have visited the majority of the project schools in all the districts during the preceding two to three years and conducted detailed field surveys. The preparation of this PCR required approximately 14 staff weeks of Bank manpower. 2.02 The mission attempted to analyze the relevance and the efficiency of education in project institutions. It has not been possible to separate out.the influence from other education investment running in parallel with the project. This PCR is based on the following main sources of information: (a) records, inventories and statistical data available in the Bank, at the Project Implementation Unit and the Ministry of Education in Lusaka. The records include supervision reports and quarterly progress reports from the Project Implementation Unit (PIU). (b) an "Evaluation Report on Zambia - World Bank Education Project" prepared by the Government of the Republic of Zambia (GRZ) in 1977. This document (attached as Appendix I) examines in great detail the project progress up to mid-1976, about three years before - 23 - closing. It represents a very interesting example of self-evaluation by a Borrower; one of the first of this kind in the education sector and the first in Africa. (para. 1.15). (c) preliminary comments on the report under (b) by the main Consultant Architect. (d) interviews with Government officials, headmasters and teachers and information from members of the appraisal mission and other Bank, Unesco and NORAD staff. III. PROJECT BACKGROUND Socio-Economic Setting 3.01 Zambia is a landlocked country in southern Africa consisting largely of high plateau intersected by the valleys of the Zambezi River and its tributaries. It is sparsely populated with some 5.1 million people in an area of 752,600 sq.km., but it is one of the most highly urbanized coun- tries of the Eastern Africa Region with about 36% (est.) of the population in urban areas. Zambia has large mineral reserves and vast areas of land suitable for crops and livestock, which, in combination with favorable climatic conditions, provide the potential for sustained development. The people are of Bantu stock and there are seven major population groups with different languages, traditions and customs. English is used as the "lingua franca" and it is the official language of the Government. 3.02 The economy is dominated by the copper industry, which in 1969, when the project was negotiated, contributed to about 34% of GDP, 59% of general revenue and 93% of exports. The prospects for economic growth, which in the latter part of the 1960s were considered fairly good, have changed during the 1970s. Between 1970 and 1974 the GDP increased by an average of 2.5% p.a. in real terms. In 1975 it decreased by 0.4%. In 1976 it increased by 2.1%. Finally during 1977 and 1978, GDP decreased by 3.8% and 3.0% (estimate) respectively. This situation was brought about largely by: (i) Zambia's continuing dependence on copper, the depressed state of copper prices and the slow pace of economic diversification, and (ii) the dislocations caused by the prolonged destabilization of the Southern African region. 3.03 The total labor force in Zambia was estimated at about 1.4 million in 1969, increasing to 1.7 million in 1977. Employment in the non-agriculture monetary sector increased from about 290,000 in 1969 to about 360,000 in 1975, but has decreased to about 340,000 in 1977. Although the First and the Second National Development Plans (1965-1976) gave priority to meeting the national manpower requirements, the demand for skilled manpower, particularly in the professional, managerial, and technical occupations, is still not being filled. On the other hand, it is unlikely that formal sector employment or agricultural sector growth is sufficient to absorb the expanding labor force. In fact, all evidence points to the conclusion that modern sector employment is declining, as the pervasiveness of capital-intensive technology reduces absorption by the modern sector of un- or semi-skilled labor by the modern sector. - 24 - 3.04 In 1969 about 29,000 non-Africans mainly of Asian or European origin were employed in the modern sector. This figure increased in 1972 to about 34,000, but has since gradually declined to about 28,000 in 1976. Expatriates continue to hold important top level technical and professional posts in the civil service (5%), the parastatal bodies (10%) and the private sector (10%) and still occupy a significant proportion of middle-level positlcns. 3.05 Since independence in 1964, domestic policies have been dominated by efforts to strengthen national unity and to implement a humanist-socialist society. Since the closure of the border with Rhodesia in 1972, Zambia's concern with establishment of peace and majority rule in the region has diverted scarce and administrative manpower away from domestic economic development problems and has also affected the expansion and improvement of the education sector. Sectoral Setting 3.06 At independence, Zambia was one of the African countries least developed in educational terms; very few Zambians had completed higher or even secondary education or participated in skill training. As a result, Zambia relied almost entirely upon expatriates for preparation and execution of development programs (para. 3.04). It was apparent that national develop- ment needed to place major emphasis on education, and consequently the sector received priority in the First and the Second National Development Plans during 1964-1976. Between 1964 and 1968 primary school (Grade 1-7) enroll- ment increased by 63% and general secondary school enrollment trebled. In spite of this increase, in 1968 only 10% of secondary school age children were in school. The secondary school system was neither in quantitative nor in qualitative terms capable of providing qualified manpower to the labor market or good candidates for further studies and training to post- secondary education and training institutions. Project Formulation 3.07 The proposal to finance certain aspects of educational development in Zambia with a loan from the Bank was first discussed in 1965. At that time Zambia was implementing its 'Transitional Development Plan' introduced shortly after independence in 1964. The Plan stressed both the crucial shortage of qualified manpower in nearly every sector of the economy and the need for creation of additional employment in rural areas. The overall objectives of the general education system were to meet manpower demands, by increasing and improving the output from secondary schools, adjusting its curricula orientation and offering better preparation for rural employment. 3.08 A Unesco project identification mission visited Zambia in February/ March 1966 to identify priority needs in education. Various potential projects were reviewed, and a comprehensive report was prepared and consid- ered by educational planners in Zambia. During the dialogue between the Government and the Bank that followed the Unesco report, several divergencies - 25 - in education policy and school design (particularly on the provision of new secondary schools, boarding and staff housing) were ironed out. 1/ In February 1968 the Government requested Bank assistance in preparing an education project and shortly afterwards a Unesco preparation mission was sent to Zambia to help prepare the project. 3.09 The Unesco preparation mission worked closely with the Ministry of Education and prepared a highly ambitious project proposal. The request submitted by the Government to the Bank included the construction of 20 new secondary schools and extensions to 56 existing secondary schools, the construction of three new primary teacher training colleges and a new sec- ondary technical school, the expansion of a technical college and a higher teacher training college, and extensions to the University of Zambia in the field of engineering and education. 3.10 In April/May 1968, a Bank appraisal mission visited Zambia, and held comprenhensive discussions with the MOE on curriculum and educa- tional policy, visiting nearly all proposed school sites. Clearly, the time between completion of the Unesco preparation mission and the Bank appraisal mission was very short, perhaps too short in view of the magnitude and the importance of the investment envisaged. On the other hand, almost one year elapsed between field appraisal and negotiations. Communications between the Borrower and the Bank was adequate to sort out most of the critical issues even though some divergences of opinion remained on the specifications and details of the diversification of secondary education. During the opening session of negotiations, the Zambia delegation paid tribute to the Bank's appraisal mission, (whose) "work had proved to be very constructive and of great help for the Zambian authorities". During negotiations in February 1969, the scope of the project was substantially reduced from the original request in number of facilities provided. Insufficient justification was found for 11 of the 20 proposed secondary schools and the three new primary teacher training colleges (PTTC). The university component was found inade- quately prepared and thus financed under a later, separate project (Second Education Project--Loan 645-ZA). The Government requested the addition of three major items for improvements to the existing teacher training facilities over and above the proposal included in the preparation documents; this was accepted by the Bank. A substantial reduction in the provision of staff housing and boarding accommodation was made in accordance with the Bank policy at that time. 2/ A comparison between the project prepared by the Unesco and the project as agreed during negotiations is shown below: I/ They are discussed in the Government's Evaluation Report, para. 1.4, page 3 (para. 2.02(b)). 2/ In a Third Education Project, Loan 900-ZA of June 6, 1973, the Bank agreed to provide additional facilities to the secondary schools and teacher training colleges under the First Education Project including supplementary water supplies, sewage treatment facilities, boarding accommodations, staff housing, classrooms and specialized teaching accommodations. See "Appraisal of a Third Education Project in the Republic of Zambia." Report No. 126a-ZA of May 9, 1973. - 26 - Number and Cost of Institutions Proposed during Project Generation Prep. Mission After Negotiation Inst./Cost US$ Inst./Cost US$ Secondar) schools - new schools 20 10.66 9 7.95 - extensions 56 7.50 56 27.12 Primary Teacher Training - new schools 3 1.78 - - extensions - 2 1.13 Technical Secondary School 1 0.41 - Secondary Teacher Training - extensions 1 0.28 2 1.16 Technical College - extensions 1 0.74 1 1.82 University of Zambia - extensions 4 2.75 - Total 24.12 36.23 Project Description and Education Objectives 3.11 The Loan was approved by the Board on April 8, 1969 and the Loan Agreement signed on April 11, 1969. The project consisted of: 1. the construction, furnishing and equipping of nine new secondary schools; and 2. the improvement of, the construction of extensions to, and the supplementary furnishing and equipping of: (a) 56 existing secondary schools; (b) two existing Primary Teacher training Colleges (PTTC's); (c) two existing Higher Teacher Training Colleges (HTTC's); and (d) the Northern Technical College (NORTEC). The total number of new places to be provided in the project was 37,037 as follows: - 27 - ----- Enrollments------ Maximum Project Schools No. 1968 1974 Increase Annual Output New Secondary Schools 9 - 6,890 6,890 805 Existing Secondary Schools 56 27,722 56,505 28,783 7,035 Primary Teacher Training Colleges 2 407 825 418 1,150 Higher Teacher Training Colleges 2 125 750 625 325 Northern Technical College 1 339 660 321 350 TOTAL 69 28,593 65,630 37,037 9,665 3.12 The educational objectives of the project (para. 3.08) were ex- pressed in the following side letter from the Government to the Bank of April 11, 1969: "Our main educational objective is to provide for the expansion and improvement of the educational system of Zambia with the aim of relating the number and quality of school leavers more closely to the overall economic and social development needs, both at national and regional levels, of Zambia. In accordance with this development objective our major efforts in education will include: (i) the improvement of instruction in primary schools, through a program of retraining primary school teachers now in service; (ii) a diversification of the content of secondary education, in accordance with estimated manpower needs, through the introduction of indus- trial arts, agriculture, commerce and home economics in the secondary school curriculum at both junior and senior levels; (iii) strengthening the teaching of mathematics and science in secondary schools; (iv) expansion of the train- ing of secondary school teachers at such a rate that secondary schools can be fully staffed by qualified local teachers in or before 1980; and (v) improving opportunities for the training of technicians. In furtherance of these objectives and to ensure the effective implementation of the Project to which the Loan Agreement relates and the efficient operation of the educational institutions included therein, we intend: (a) to strengthen educational planning and supervision by expanding the staff of the Planning Unit and of the Inspectorate of the Ministry of Education, by formulating planning objectives and criteria, particularly as regards educational finance and manpower development, by intro- ducing modern statistical methods and by continued cooperation and coordination among the Ministry of Education, other government agencies and private bodies; (b) to support the diversification of secondary education by appointing to the staff of the Inspectorate a sufficient number of specialists in industrial, agricultural and other forms of pre-vocational secondary education; - 28 - (c) to readjust continuously the pre-vocational content of secondary education to the manpower needs of the economy, with particular attention to the needs of the rural sector; (d) to implement the current program of expanding and to adjust the secondary school teacher training courses at the buiver- sity of Zambia and at the Higher Teacher Training Colleges in Kabwe and Kitwe so as to train teachers for all subjects taught in secondary schools in the proportion needed, with special attention to the training of teachers of mathematics and science, and in particular to include, not later than March 1, 1970, appropriate programs for teachers in indus- tiral, agricultural and commercial subjects and in home economics; and (e) to implement the present program of retraining primary school teachers now in service, for which purpose the Teacher Training College in Chalimbana, to be extended and equipped as part of the Project, will be used." Only one (d) of the objectives expressed in this letter were formulated in measurable terms. IV. PROJECT IMPLEMENTATION Project Management 4.01 The project was executed by a PIU established in the Ministry of Education, headed by a project director and assisted by a project architect together with technical, accountin , administrative and secretarial staff. 4.02 A condition for effectiveness was the establishment of the PIU and the appointment of the director and project architect within 90 days from the date of signing. This condition was fulfilled in the specified period. 4.03 In the early stages, the lack of guidelines for the key staff of the Unit may have been responsible for problems of organization but as the project progressed, the administrative quality of the PIU improved with growing experience in dealing with increasing complex problems. Probably the most serious difficulty relating to the Unit's efficiency has been the lack of staff continuity. Over the life of the project the Unit has had four directors, three project architects (one who became director) and three finance controllers often succeeding their predecessors without the benefit of overlapping. 1/ 1/ Institution building in regards to the permanent establishment of an implementation unit in the MOE apparently was not intended. An imple- mentation unit for education in the Buildings Branch of the Ministry of Works was established under the Third Education Projecct (Loan 900-ZA) which is to administer future education projects involving construction work. - 29 - 4.04 It would be difficult to imagine the outcome of the project without the assistance of NORAD which provided, apart from most of the secondary school consultant's fees, the recruitment and payment of PIU key staff and super- visory engineers. It was anticipated that assistance would be provided. Thus no provision was made in the Loan Agreement for technical assistance related to implementation. Over 100 man years of professional assistance were required to complete the project. 4.05 The opportunity to use the PIU as a training ground for Zambian counterparts was not utilized. Very little of the technical expertise will have been imparted to Zambians with the exception of accounting and procure- ment where nationals worked with specialists and also in the training of furniture maintenance crews. As for civil works no counterparts were attached to the supervisory engineers. 4.06 Except for these shortcomings, overall performance by the PIU has been impressive, particularly in view of ever increasing difficulties faced in the latter half of implementation. It should be pointed out that for the last three years a Zambian project director, formerly a senior officer of the MOE, has headed the PIU with great competence. Physical Implementation Consultants 4.07 Three architectural/engineering consulting firms or agencies were selected following Bank guidelines and engaged by the Government to execute various components of the project: (i) Buildings Branch of the Ministry of Works (MOW) for the Primary Teacher Training Colleges; (ii) A locally established firm of Architects for the Northern Technical College (NORTEC); Ndola and (iii) An international firm of architects, for the secondary schools, water projects (Loan 900-ZA) and design of majority of the furniture. Work undertaken by above firms (i) and (ii) involved the PTTCs and NORTEC, representing only 12% of the total project, while the balance of the work involving the secondary school component was carried out by firm (iii), excluding additional works under the Third Education Project. As indicated at para. 4.04, the cost of consultants was financed through a NORAD grant. 4.08 Appointment of all consultants was achieved in the case of firm (i), two months after signing of the Loan Agreement, and (iii) within nine months, - 30 - which represents a delay of about six months in the case of firm (iii). Firm (ii) was not appointed until later 1974 awaiting certain decisions on the NORTEC component (paras. 6.13-6.16). 4.09 Generally, the consultants performed well with high professional standards. Different design approaches were adopted by each firm to the buildings included under their contracts. The performance of firm (iii) is marred somewhat by the controversial design of the secondary schools and furniture as discussed in paras. 4.11 to 4.16 and 4.19. 4.10 The locally established firm and MOW designed building employing conventional building methods and using materials commonly available in Zambia which resulted in few problems during construction and relatively short implementation periods. Secondary School Designs 4.11 The design concept proposed by the consultants, namely "to stand- ardize room units and certain components which go into them in order to comply with different site conditions and space requirements", was embodied in their first report. From this modular approach evolved gradually the design of the construction system and the choice of building materials and components 1/ described in various reports dated November 1970 to April 1971, and a proto- type of the classroom module was constructed in Lusaka. The consultants stressed the following factors as main criteria for their approach: (i) Magnitude of the project, cost limitation, strict time limit and lack of skilled labor and building materials in rural areas. (ii) The Zambian industry and its production capacity was found to be well developed. Again, according to the consultants, the project offered the oppor- tunity to introduce industrialized building techniques in the country and thereby give an impetus to develop these possibilities. Based on existing industries it was found feasible to develop a method for mass production of a variety of light weight components to be brought to the sites and erected in combination with conventional trades since the program called for a large number of units to be constructed to the same requirements. 4.12 The reports embodying these recommendations were approved by the Ministry of Education and by the Bank, subject to comparative cost estimates between the proposed design and a conventional solution. This study concluded that costs differed only marginally but did not include an analysis of the foreign exchange implications of introducing industrialized building techniques. 1/ Long span reinforced concrete post and beam structure and concrete floor slabs; absestos cement barrel vaulted roofing with polystyrene insulation; modular light weight exterior walls and interior partitions made of absestos cement sandwich panels with styrofoam infill, louvered and fixed glass windows, wood doors combined as required to produce walls and openings. - 31 - 4.13 An objective evaluation of the design solution must take into account changes in outlook as well as in the political and economic conditions of the country over a span of almost a decade. These changes are further described under para. 4.18 below since they have very much affected the execution of the project. When the project started, the economic outlook for Zambia was good and this coupled with a widely held notion at the time, that development was a matter of technological progress, made the proposed system far more acceptable than it would be today. However, it appears that time spent on preliminary studies was too short to allow the consultants to fully familiarize themselves with local conditions and the skill and capability of Zambian contractors and manufacturers of building materials. 4.14 To sum up, the system which was supposed to circumvent severe time and cost limitations and shortages of skilled labor through ease of construc- tion did not achieve the anticipated targets in any discernible way. If conventional construction methods had been utilized, the difficulties later faced (para. 4.18) would probably have been reduced. 4.15 Problems of the system also included difficulty by contractors to meet the tolerance specifications which indicates that criteria had been set without sufficient knowledge of prevailing construction standards. Prefabri- cated asbestos cement sandwich panels which were designed as wall in-fills proved to be a major problem on some schools with deformation of the panels and decomposition of styrofoam in-fill. About 10% of all panels had to be replaced with similar panels but resulting in serious delays. Although ascribed to a manufacturer's fabrication defect and lack of quality control, the wall system is still a weak element, its life expectancy a question mark and very vulnerable to breakage. Most problems, however, have been overcome and the schools generally are of acceptable workmanship. The strength of the overall school design rests undoubtedly in good site organization and the planning of various elements or units such as classrooms, laboratories and workshops which are environmentally pleasing and functional. Similarly, dining/assembly halls and kitchens are well arranged and ablution blocks are also well designed. Weaknesses in the overall design tend to be more in details or inherent in the system namely, poor soundproofing in classrooms, ventilation gaps which allow dust to come into the buildings, poor acoustics in the dining hall and general vulnerability to theft. Finally, despite the controversial appearance of the schools and their "industrialized" look which is in any case a subjective aesthetic evaluation, the schools do work as learning/living environments and in this respect the consultants have achieved very good results. Civil Works 4.16 Twenty-nine contractors, of which eight were foreign, pre-qualified for the project. Tendering did not attract much interest from abroad: only two foreign contractors submitted tenders, one of them successfully. A total of nineteen contractors were awarded forty-two contracts. The bulk of con- struction work was therefore subject to competition from local contractors, many of them unacquainted with industrialized building techniques and with financial and technical management. - 32 - 4.17 One of the difficulties faced by the bidders was the use by the consultants of a computerized system of building documentation called the "CBC System" 1/ which due to its complicated nature was a source of confusion rather than help with many errors of pricing and quantities produced by tenderers unfamiliar with the system and also the subject of many disagree- ments between the PIU and the consultants. The "CBC" system was far too sophisticated for the construction industry in Zambia. 4.18 In the first three years of implementation, progress was generally good due to several factors: the economy was expanding and most imported mate- rials were obtainable from Rhodesia, the Republic of South Africa or through other import routes mainly the Benguela Railway via Lobito or Dar es Salaam. Construction of the TTC's which started ahead of the secondary schools bene- fitted largely from these circumstances. With the events in Angola and Mozambique and the closing of the border with Rhodesia in 1973, the situation changed radically, particularly with respect to the supply of materials. In addition, by 1972, the project suffered about a two-year delay because of difficulties by the Government in providing counterpart funds and foreign exchange, both related to the falling price of copper. Slow progress con- tinued to be related to these problems which steadily worsened from 1973 onwards. Also as a result, from the contractors' side, financial difficulties of major proportion affected their performance namely liquidity of funds due to the supply situation coupled with the CSTB decision to delay application of a price fluctuation clause for building materials affecting all contracts (31) awarded after 1973. 2/ This increase was finally authorized in November 1976, but not before several contractors had experienced severe financial problems. Four contractors narrowly averted collapse while one of the largest firms went into bankruptcy and had to be salvaged through a "Scheme of Arrangement" financed by the Government's insurance company which had provided the perform- ance bond. The overall situation was eased to some extent by an amendment to the Loan Agreement (initially resisted by the Government) to allow the use of withdrawal procedure 1II 3/ for direct payment to overseas suppliers for con- struction materials. The extended implementation period of nine years and nine months, nearly double the time foreseen at appraisal, cannot therefore be ascribed to one cause but to the interaction of many factors and circumstances. Furniture 4.19 The design of furniture was not of an institutional type and prob- lems in transportation, assembly, and storage, all contributed to an un- satisfactory situation with respect to loose furniture. The majority of furniture supplied under the project was designed by the secondary school architectural/engineering consultants under the direction of the project architect, based on the use of tubular steel frames and chipboard with laminated plastic surfaces for tables and molded plywood for chairs. The components were shipped in a "knockdown" condition and assembled upon delivery. Some furniture proved to be totally unsuited for heavy school use, being far too delicate and difficult to assemble. The largest contract was 1/ The "CBC system" was only used for the secondary schools. 2/ The first 11 contracts were awarded on a fixed price basis. 3/ Procedure where borrower may request Bank to make direct payment to a supplier on the borrower's behalf. - 33 - awarded to a foreign firm which provided furniture of poor quality of materials and workmanship. Greater care by the PIU and the consultants should have been given in evaluating the quality of furniture to be provided. Assembly of this furniture proved to be a major problem. CSTB did not follow the recommendation of the PIU to award the assembly to the furniture manufacturer and instead, approved a contract to a local firm which due to the size of the project and its own lack of experience was unable to successfully carry out its work. In timepthe contract was terminated and the CSTB decided to use the Prison's Department which for different reasons turned out to be just as ineffectual. Finally in the last two years of the Project, good results were achieved through the creation of several assembly teams trained by a NORAD engineer and under the control of the Project Unit. Reimbursement by the Bank against expenditures for the assembly of this furniture was not allowed since the award of the assembly contract was not in accordance with award procedures. Delays in assembly and in completion of civil works also created problems of storage. Because of inadequate warehouse facilities most of the unassembled furniture was stored under tarpaulins in the open air resulting in damage through rust and humidity. Because of the flimsy design, a considerable amount of furniture throughout the schools has been broken or damaged. The assembly teams have already carried out repairs through welding broken fur- niture in all schools but this will probably continue to be a serious and expensive maintenance problem. In addition, the sheer logistics of providing furniture to 70 institutions in the project was not properly thought out in advance of procurement. Equipment 4.20 In general, the equipment supplied to the secondary schools and Teacher Training Colleges are of good quality. Lists of equipment were com- piled by the Ministry of Education with procurement handled by the PIU. Contracts for the supply of equipment were predominantly awarded to foreign firms in most cases with no representatives in Zambia. Procurement of equip- ment took place early in the project and as was the case for furniture was not coordinated with the completion of civil works due in great part to the immense variety and complexity and to insufficient staff in the PIU. Because of limited warehouse facilities, equipment had to be stored in the open with resulting damages. Despite the fact that most of the equipment was packed at the source of origin into units that could be sent directly to the final destination, many institutions complained about not receiving their full quota of equipment particularly with respect to laboratory equipment and workshop tools. Corrective measures were difficult to apply before most of the equipment had been distributed and the source of shortage determined. In some cases, the schools reported that they did not know what they were entitled to. However, copies of detailed lists showing room locations and including descriptive literature and parts catalogs were distributed, but in some cases apparently not received or misplaced. Equipment was never formally handed over to the schools, and each headmaster was assigned the responsibility to check and verify items received. The whole exercise of supplying equipment for office use, laboratories and workshops was so massive and complex that the PIU personnel, limited both in number and experience, - 34 - were not able to carry it out with sufficient competence, and headmasters who were to assist in receiving the equipment apparently did not provide the ex- pected assistance. Most of the equipment supplied is relevant to the teaching syllabuses with the exception of some workshop machinery and audio visual equipment which is considered too sophisticated for the needs. Due to the delay in provie'ng qualified teachers for wood and metal workshops training, equipment was left unused and unsupervised for long periods, resulting in some deterioration and loss of tools. 4.22 In institutions where kitchen facilities were provided, most cook- ing equipment is overly sophisticated with a capacity beyond the needs of the schools. Little training was provided in the handling of this equipment which could result in misuse. The decision to use (bottled) gas fired equip- ment, which was rational at the inception of the project, will probably render most of the equipment inoperable due to the difficult and unreliable gas supply situation at present. It is also doubtful that the schools will receive sufficient funds to pay for such expensive energy and most schools continue cooking outside using traditional charcoal and wood (para. 5.07) with health standards perhaps lower than those envisaged in the planned system. Maintenance 4.23 Day-to-day standard of maintenance varies considerably between schools and is directly related to the interest and dedication of headmasters and teachers. For building maintenance, the consultants have prepared a general maintenance manual as part of their services. Among the weak compo- nents of the buildings are the glass louvered windows which are fragile, the asbestos panels described under para. 4.14 and sanitary installations. The vitreous china toilets, wash basins and taps all show signs of wear and many fixtures are already out of order. The Government insisted upon western type toilets when the traditional Asian type would have been much preferable in terms of maintenance and cleaning. All sanitary installations should have been of a heavy duty quality to resist the wear and tear of the schools. Doors are also of poor quality and will require repairs or replacement in time. Apart from the maintenance of the buildings, the low quality of furniture on one hand and the sophisticated nature of a lot of equipment on the other, will require trained crews to insure a reasonable standard of maintenance. 4.24 Under present economic difficulties it is doubtful that the Govern- ment will assume the financial responsibility of such a program. A mainte- nance program proposal is being prepared by the Ministry of Education but lacks financing. It may become part of the fifth education project, now under preparation. Covenants 4.25 The first covenant, Section 5.01 of the Loan Agreement, concerning the establishment and staffing of a Project Unit has satisfactorily been fulfilled (paras. 4.01-4.06). - 35 - 4.26 Sections 5.02, 5.03 and 5.04 of the Loan Agreement all deal with staffing of project schools, the inspectorate of the MOE and the regional education offices with qualified personnel. In addition, in a side letter of April 11, 1969 (para. 3.12), the Government stated the educational objectives of the project dealing with the same problems. The outcome of the Govern- ment's efforts in implementing the objectives and fulfilling the education covenants is assessed frankly in the Government's Evaluation Report on the project: "There was some expansion in the staffing of the Planning Unit and the Inspectorate. But the effectiveness of the expansion, especially of the Inspectorate, was considerably hampered by transfers, retirement and resignations. There was never a time when the Inspectorate had its full establishment. The pressure of administrative work, transport difficulties, lack of funds for running expenses, lack of coordination efforts and poor secre- tarial assistance limited the extent of supervision and guidance. There was never a common forum to discuss educational objectives, priorities and targets. There was no educational expert 1/ attached to the PIU to monitor, evaluate and modify priorities and targets with respect to the changing situation. However, it should be noted that the Planning Unit within the Ministry of Education had introduced modern statistical methods to assess the input, throughput and output of schools." 4.27 Nonetheless, the covenants of Loan Agreement have been reasonably well fulfilled, although the secondary school teacher training in practical subjects was delayed at about the same rate as the building programs. A program for in-service training headmasters is planned to start in 1979. The shortcomings in this respect has been pointed out by several supervision missions, but there has been little that the Bank has been able to do to rectify the situation. The decreasing budgetary allocation to education, in real terms and in relation to the expanding education system, has put a constraint on expansion and operation of the inspectorate, the planning and administrative units of the MOE. 4.28 The covenant in Section 5.06 of the Loan Agreement refers to adequate maintenance of buildings and equipment included in the project. This covenant has not been fulfilled adequately, but a maintenance proposal has been prepared by the MOE and awaits adequate financing (para. 4.21). 4.29 All other covenants--Sections 5.07 to 5.12--have been satisfactorily fulfilled. 1/ Not until the last Director took over the Project Implementation Unit in 1976. - 36 - V. PROJECT COST AND FINANCING Capital Cost 5.01 At appraisal, project cost was estimated at US$36.2 million. The loan of US$17.4 million covered the foreign exchange requirements estimated at 48% of total costs. Estimated and actual costs are summarized in the following table: Appraisal Estimate Actual Costs Difference Category of (million) (million) % Expenditure K US$ K K I. Civil Works 17.1 23.9 21.9 + 28% II. Professional Services 1.8 2.5 3.8 ]l +111% III. Furniture 2.8 3.9 2.6 /2 - 7% IV. Equipment 4.2 5.9 3.5 /2 - 17% 25.9 36.2 31.8 + 23% /1 Includes a grant from NORAD of Kl.8 million and involves services provided to the MOE for a separate construction program financed entirely by the MOE and for which a cost breakdown of such services is difficult. /2 Includes transport charges in Zambia amounting to KO.67 million for both categories. The final total project cost of K31.8 million represents, therefore, an increase of 23% over the appraisal estimate. Excluding grants from NORAD, for architectural fees and supervision of construction of K2.6 million, the total project cost would be K29.2 million or $42.9 million, an increase of about 18% over the original appraisal estimate (Annex 3). The Government's contribution of K17.6 million represents about 55% of total project cost. 5.02 The following table gives a cost comparison by type of institution between appraisal estimates and actual costs in Kwacha (million): Institution Appraisal Estimate Actual Costs Difference % (K million) Secondary Schools 23.0 28.3 + 23% Teacher Training Colleges 1.6 1.5 - 6% Technical College 1.3 2.0 + 54% Total 25.9 31.8 + 23% The secondary school program represents almost 90% of the total project. The cost increase of K5.3 million over appraisal is relatively modest in view of the length of the project and the very steep rise in general building costs experienced particularly from 1974 onwards. This was offset, to some extent, by the fact that the gross areas were generally lower than estimated due to - 37 - the design solution which included a reduction of internal circulation areas to a minimum. The grouping of civil works contracts and benefitting from favorable tender prices for at least the first one third of the schools tendered resulting from the competitive climate existing at the time (1972) in the construction industry also contributed to keeping the costs down. 5.03 Unit costs per student place of the secondary schools vary consider- ably because of geographical locations, differences in building programs (some schools being completely new versus other schools involving additions and improvements), the time frame of construction and the performance of con- tractors, etc. It is, therefore, not meaningful to compare unit costs in such a varied building program. Cost comparisons were, however, established between three new rural boarding schools, Chinsali, Mansa and Nyimba all with similar enrollments of 620 students converted to 1971 prices and u2ing the Copperbelt line of rail as comparator (100). Unit costs per net m of con- struction varied from K90 to K116 which is within a 10% margin of cost when compared to other schools built at the same time but using conventional construction methods. Cost comparison for rural boarding schools (620 students, 1971 "line of rail" prices) Kwacha Net Area Unit 5ost 1/ (000 ) M K/M net Chinsali 453 4,550 100 Chongwe 2/ 526 5,760 91 Mansa 417 4,620 90 Nyimba 545 4,670 116 Pemba 2/ 491 5,780 85 1/ Excluding site works and staff housing. 2/ These schools, outside of the project, are based on the same schedule of accommodation and were built in 1971/72 using conventional methods. 5.04 The PTTCs, which represent about 5% of total project cost, were built within the first four years of the implementation period and conse- quently did not suffer from very high price increase. The PTTCs were built at less than appraisal estimates using conventional methods of construction based upon designs previously prepared by the MOW which were similar to the existing facilities. These PTTC-s are all situated centrally near Lusaka or the Copperbelt resulting in a good supply line for building materials and attracted keen competitive bidding. With respect to NORTEC, the higher cost in relation to appraisal estimates is the result of a totally different program and the delay in the construction to the latter part of the imple- mentation period when prices were much higher than originally estimated. 5.05 Costs of furniture and equipment (para. 5.01) are below appraisal estimates whereas professional services are 111% above. This high cost of professional service is directly related to the severe delays in execu- tion of the project. A grant from NORAD of K1.8 million for the con- sultants (firm iii) covers this.overrun which in fact can also - 38 - be attributed to work carried out for the MOE which was not a part of the project, per se. NORAD also provided, on a grant basis, about 110 man years of the services of supervisory engineers who played a key role in implementing the project and other programs of construction fully financed by the Borrower. Disbursements 5.06 No disbursements were made in the first 30 months from effective- ness, reflecting the initial difficulties in management and the fact that the consultants' fees were paid by NORAD together with the problem of getting such a vast project into the implementation stage. From mid-1972 onwards disburse- ments increased significantly and by mid-1974, the initial closing date, about 40% of the Loan had been disbursed. This trend continued until mid-1977 by which time disbursements had reached 88%. From then, until the final closing date, disbursements tapered off as a consequence of the very difficult country economic and supply situation. Annex 2 is a graph comparing estimated and actual disbursements. Recurrent Expenditures - Annex 4 5.07 The recurrent expenditures for education in current and constant 1968 prices are presented in Annex 4. In real terms, because of the stringent financial situation of Zambia in the last few years, the total budget for MOE has decreased by 22% from 1976 to 1979. Whereas the budgetary allocations per primary school pupil kept pace with inflation until 1976, they decreased by about 30% from 1976 to 1979. More significantly, allocations per secondary school student show a gradual decline since 1974 when the expenditure was K184, to an estimated value of K109 in 1979. This happened at a time when the new facilities provided for the secondary schools under the project started to become operational. This resulted in reduced supply of teaching materials to the schools, which particularly affected the new subjects like industrial arts, home economics, commerce and the science laboratory work. The appraisal estimate of expenditure per secondary school student was K227 in 1974 (constant 1968 prices); the actual amount allocated was K184. It is obvious that the new facilities provided for secondary schools cannot be used efficiently without adequate allocations for teaching materials. Allocations for maintenance, repair and upkeeping of buildings are also inadequate (para. 4.23). 5.08 The insufficient budgetary allocations have adversely affected the utilization and efficiency especially of the institutions with boarding students. The enrollment of students to many institutions, especially in technical and vocational education and training where almost all students are boarders, have been determined on the basis of the allocation of money for feeding the students irrespective of the capacity of the institution in terms of teachers and physical facilities. Attempts to start production units in schools to assist in food production for boarders have mainly been unsuccessful. NORTEC has tried to increase enrollment by advertising for day-students but has only been partly successful. As boarding is considered a great advan- tage by the students, whose homes usually are not a good place for studies, they have applied a strong pressure on the administration to become boarders although many live at a short distance from the school. - 39 - VI. PROJECT OPERATIONAL OUTCOMES Overview 6.01 As i,ndicated in para. 3.08 the project was developed with two principal objectives: (i) to expand and improve secondary and technical education in order to provide trained local manpower in support of a growing economy with rapidly increasing modern sector, and (ii) to reorientate the content of instruction by introduction of practical subjects and strengthening of mathematics and science subjects so as to provide school leavers with the background on which to build on-the-job training and experience. At the time of project development Zambia had only a very limited pool of trained manpower. During the ten years of project implementation, output and employment in the modern sector has not grown as forecasted at appraisal (para. 3.02 and 3.03). Yet, the Zambian economy is still highly dependent on expatriate skills (para. 3.04). At the same time the Government has embarked on a far-reaching reform of the education system, which, whilst not changing the main curricular objectives of the project, places them in a different context. An outline of the proposed reform is in Annex 5 together with a preliminary analysis of its fiscal implications. 6.02 Between 1969 and 1977 the total employment in the monetary sector increased by about 50,000 and non-African employment by about 2,000. Although there has been a decrease in employment of non-Africans in the monetary sector in the middle 1970s (para. 3.04), the manpower situation still features a high dependence on expatriates, especially in the high- and middle-level management areas. For example, the important mining sector employs about 4,000 expatriates mainly in the engineering sector. Although they represent only 7% of the industry's total labor force as against 16% in 1964, the rate at which they are being replaced by Zambians has fallen from 7% p.a. between 1964-1970 to 2.5% p.a. over the last few years. Employment of expatriates in the secondary schools was about 90% of total teaching staff in 1969 but only 56% in 1977. On the other hand, because of the Zambianization process, many Zambians have had to take up management positions without having the necessary training and experience. A survey in 1977 showed that 38% of Zambian managers and super- visors in private and parastatal companies with 51-500 employees were considered as only partially qualified for the posts which they occupy. 6.03 In 1968, about 84% of the relevant age group attended primary school, 10% attended secondary schools and the output from secondary education was about 2,000. While nearly all Zambian children today can start schooling, every year about 30,000 leave school after Grade 4, another 80,000 after Grade 7 and about 10,000 after Grade 10 (Form III), all with small chances of obtaining wage employment at the level they expect. The annual output from the seconary schools is at present close to 8,000 students, which quantitatively is sufficient to provide candidates for all post-secondary education and training institutions. However, the low quality of school leavers of all levels is of a great concern to post-secondary training institutions, the - 40 - University of Zambia (UNZA) and employers. Although no household survey of the impact of education on productivity has been carried out, it appears that primary school leavers are hardly prepared for working life either in an industrial or agricultural environment. The introduction of diversified curricula in secondary education has not yet had a significant impact on the employment prospects for secondary school leavers. Many of the Form V leavers do not have yet sufficient qualifications to enter post-secondary courses. Therefore, they compete for places in institutions which formerly required only Form III entry qualifications; for example 80% to 90% of the accepted candidates to craft courses are Form V school leavers. The technical and vocational training system has expanded from an enrollment of 1,570 in 1967 to an enrollment of about 5,700 trainees and an output of about 1,800 technicians and tradesmen in 1977. The post-secondary training institutions and especially the UNZA have sufficient institutional and physical facilities to provide training for a larger number of higher level manpower than their present enrollment and output; their full utilization is prevented by the lack of good candidates with mathematics and science background (para. 6.08) as well as by the recurrent cost constraint (paras. 5.07-5.08). 6.04 The secondary school education component of the project has increased the capacity of the system by about 50% and contributed to raising the general standard of about 7,800 school leavers p.a. Even though the introduction of practical subjects in the curriculum has not had yet any apparent impact on the employment prospects, there is a considerable lag between the time when all schools are properly equipped, trained teachers are appointed, the new programs are firmly established and the time when the outputs data from the education program are sufficient to evaluate their labor market performance; this could be done only in the mid-1980s. The project was also expected to provide improved instruction in both primary and secondary schools through the teacher training programs. In particular, the teaching of practical subjects, mathematics and science, was expected to provide better candidates for further education and training of higher level manpower. The impact of the project in this respect cannot yet be fully assessed but indications from available statistics show a steady increase in overall quality of secondary student output. The technical education component of the project would increase the output of technicians from the NORTEC, but the first batch of students using the new facilities will not graduate until 1981-82. Secondary Schools Annexes (6 and 7) 6.05 The capacity of the 65 project schools was expected to increase from 27,722 in 1968 to 63,395 at completion (1974). In 1978 enrollment had reached 60,876 and is still increasing in schools completed in 1977/78. Therefore, the enrollment target has been virtually reached, even though with a delay of some four years. At appraisal the total enrollment in secondary schools was estiamted at 81,700 for 1974 when the project was to be completed, with a further expansion to 108,200 in 1978, on the assumption that further secondary school construction programs would be implemented after 1974. At completion, the total enrollment is estimated at 85,800 which exceeds the original comple- tion target. As no other secondary school building program has started in Zambia after the project, the quantitative targets have been successfully achieved. Therefore, in quantitative terms the project is making a major contribution towards alleviating shortages of trained local manpower (paras. 3.04 and 6.02). - 41 - 6.06 The curriculum diversification efforts consisted in introducing four practical subjects at the junior secondary level: industrial arts, home economics, arts/crafts and commercial subjects. All the project schools have been provided with physical facilities for offering at least two of the four subjects. There has been some delay in the introduction of the new subjects due to teacher shortages and belated equipment installation. With expansion in teacher supply the diversified curriculum should be fully introduced during the first half of 1980s. In industrial arts, only seven out of 58 project schools have still no teachers, in commercial subjects all schools have teachers, in home economics only one out of 43 schools has no teachers, whilst 25 out of 30 project schools have no arts/craft teachers. However, arts and crafts teacher training did not start until 1977 in Lusaka, but would produce 15-20 new teachers per year from 1979 onwards. Therefore, an adequate supply of teachers would be provided with a couple of years' time. The 64 project schools which have been provided with science laboratories are all adequately staffed. 6.07 According to the appraisal estimates, the curriculum diversification efforts should have produced the following annual output from the project senior secondary schools: Section No. of Students in Form V % of Total Arts 1,680 21.5 Science 1,715 22.0 Technology 1,470 19.0 Agriculture 735 9.0 Commerce 875 11.0 Home Economics 1,365 17.5 Total 7,840 100.0 The curriculum diversification of the senior secondary level has not yet taken place because of a number of reasons. Firstly, the introduction of new sub- jects at the senior level comes at least three years after the introduction at junior level; thus in several project schools, it will be possible only in the early 1980s. Secondly, senior secondary schools students usually aim at and choose subjects which will qualify them for further academic studies, and prefer therefore academic subject in favor of practical subjects. Finally, the teacher training programs in practical subjects presently applied in Zambia do not provide qualified teachers for the senior level which, therefore, has been highly dependent on expatraite staff. The results from Cambridge Overseas School Certificate (COSC) examination in 1976 show that only about 4% of the candidates took home economics and industrial arts subjects, about 20% took agricultural science and about 35% commercial subjects. However, at senior secondary level the two last subject areas are treated more as theoreti- cal subjects and do mainly include classroom work. - 42 - 6.08 With the ultimate aim to provide an increase in the supply of middle- and high-level manpower, one of the project objectives was to improve the quality of Form V school leavers--especially in mathematics and science--to supply good candidates for further education and training. It is not yet possible to atoess the project results in this respect. The project schools are all provided with well-equipped science laboratories, which are all fully utilized (para. 6.06). However, the output of science teachers from the UNZA has been below expectation (para. 6.10) and the secondary schools are still mainly dependent on expatriate teachers; out of a total 556 science teachers in project schools only 150 were Zambians. The latest available statistics from the COSC examinations are those of 1976 and show the following result in selected science and mathematics areas: COSC Examination 1976 1/ Grade Distribution Proportion to Total No. of Candidate in % Number of Candidates Very Good Credit and Pass Subject in % of Total No 2/ Grade 1-2 Grade 3-6 Mathematics B 62 1.1 26.9 Mathematics C 20 3.9 29.3 Add. Mathematics 1 1.9 34.0 General Science 8 1.5 49.4 Physics 6 4.8 43.8 Chemistry 5 0.4 54.4 Biology 72 1.3 29.9 Geography 76 1.1 37.7 1/ All secondary schools. 2/ Total number was 7,679 candidates. Only about one third of the candidates taking mathematics, biology or geography and about half of the candidates in other science subjects received a grade 6 pass mark and very few in each subject received the highest grades 1-2. A general improvement is, however, taking place in the quality of senior secondary school graduates depicted in the following table: - 43 - CAMBRIDGE OVERSEAS SCHOOL CERTIFICATE RESULTS, 1971-76 Full COSC DIVISION YEAR I II III I, II G.C.E. Z.C.E. FAILED TOTAL & III No. of % % % % % % % Candidates 1971 3.9 8.9 22.3 35.1 30.1 2.2 30.2 7,038 1972 4.3 10.3 25.1 39.7 28.6 2.6 29.2 6,925 1973 4.7 11.1 28.7 44.5 29.4 2.6 21.1 6,439 1974 5.7 14.6 30.0 50.4 30.0 2.4 15.4 6,577 1975 6.1 15.6 32.8 54.5 27.7 2.0 12.1 7,251 1976 8.0 18.3 33.4 59.7 35.3 - 0.7 7,685 NOTE: 1. A successful candidate is awarded one of three types of certificates. These are (1) a full Cambridge Overseas School Certificate in one of three divisions; (2) a General Certificate of Education if the candidate has obtained a credit pass in one or more subjects but has not fulfilled the requirements for the award of (1); (3) a Zambia Certificate of Education which up till 1975 was awarded to candidates who had not fulfilled the requirements for the award of (1) or (2) but who had obtained subject passes in five or more subjects. This has since been discontinued. 2. Cambridge Overseas School Certificate results for each subject are graded on a nine-point scale. Grade 1-6 = Credit Pass, Grades 7-8 = Pass, Grade 9 = Fail. Normally only Grades 1-6 are considered as passes in assessment of qualitative achievements. Secondary Teacher Training - Annex 8 6.09 The quantitative target of the secondary school teacher training programs included in the project was "that secondary schools be fully staffed by qualified local teachers in or before 1980" (para. 3.12 (iv)). The project provided for the expansion of the two Higher Teacher Training Colleges (HTTC) at Kabwe and Kitwe from a capacity of 125 to 750 trainees in academic and practical subjects. While the HTTCs would concentrate on providing teachers for the junior level, the expansion of the UNZA teacher training programs assisted under the Second Education Project (Loan 645-ZA) was aimed at providing teachers for the senior level of the secondary schools. Teachers of agricul- tural subject are trained at the National Resources Development College (NRDC), and teachers of industrial arts subjects, who, at the time of appraisal, - 44 - were expected to be trained at the NORTEC, are now being trained at a new Technical and Vocational Teachers College (TVTC), established through bilateral aid (SIDA) in 1974. At appraisal it was also recognized that at the beginning of the operational phase of the project a great number of expatriate teachers would be needed; an increase by 648 foreign teachers from 1578 to 2226 was estimated between 1968 and 1971. 6.10 As depicted in Annex 8, in 1977, the outputs from the HTTCs reached and exceeded the numbers estimated during appraisal. In addition to the two project HTTCs, the output figures of 440 teachers include also the TVTC and the NRDC with altogether about 100 teachers. In 1978, output is estimated at 500 teachers with a higher ouptut, about 120 teachers, from TVTC and from a new teacher training program at Evelyn Hone College for music, arts, and crafts teachers. Thus, the project has successfully reached the quantitative targets of 325 teachers p.a. However, the specific target to replace expatriate teachers in or before 1980 (para. 6.09) will be reached later than anticipated at appraisal; with present output rates from the HTTCs and the UNZA, it will not be attained until 1982/83 provided the enrollments are kept fairly constant. The delay in reaching the target is due to the lower than anticipated output of teachers from UNZA, which is still only about one third of the planned numbers of 500 teachers p.a. Training facilities exist at UNZA, but it is difficult to recruit qualified candidates with good mathematics and science grades. In addition, many mathematics and science teachers are offered more remunerative employment in private and parastatal companies and leave the teaching profession after a relatively short period of appointment. These and related teacher training issues are discussed in the PRC for the Second Educa- tion Project (Loan 645-ZA). 6.11 The quality of the teachers trained at UNZA is considerably higher than that of those trained at the HTTCs. In the long run the quality of secondary education can only be improved through staffing the schools with university graduate teachers and diplomate teachers from improved and extended training at the HTTCs. Subject inspectors at the MOE believe that the present courses at the HTTCs of 1-1/2 to 2 years' duration are too short to produce fully competent teachers, and should be extended to fully three years. The strengthening of teaching of science and mathematics in secondary schools (para. 3.13 (iii)) has not yet produced noticeable, successful results (para. 6.03) partly because the required good quality graduate teachers have not been provided. Although most science teachers have been recruited from abroad, the quality of teaching has not improved as expected, because deterioration of terms and conditions of employment and reduced job security have forced Zambia to recruit fairly young and inexperienced staff. Primary Teacher Training 6.12 The improvement of the primary teacher training facilities consisted of the extension of two existing Primary Teacher Training Colleges (PTTCs), one in Kitwe to 525 student places for pre-service training and one in Chalim- bana to 300 student places for in-service training. Both these institutions are now fully operational and have successfully contributed to the improvement of primary teacher supply as depicted below: - 45 - Primary Schools Enrollment, Teachers Supply and Output from Teacher Training Colleges Numbers of Teachers Actual Primary School Out of which Output Enrollment in 1,000 Fully Trained Pupil/Teacher from Year Appraisal Accomplished In Post in % Ratio PTTC 1968 598.2 1/ 608.9 1969 643.7 661.3 842 1970 688.3 694.7 13,291 85.7 52.3 857 1971 727.8 729.8 13,846 84.8 52.7 904 1972 765.1 777.9 15,577 79.7 48.3 858 1973 793.3 810.2 16,595 79.0 47.7 911 1974 823.4 858.2 17,384 79.1 48.0 914 1975 857.3 872.4 17,636 79.7 48.2 951 1976 - 907.9 18,915 80.5 48.0 1,052 1977 - 944.1 19,891 86.6 47.4 1,071 1978 - - 1,395 1979 - 1980 974.9 1/ Noted as "Actual Figure." Between 1970 and 1977, the total number of teachers has increased by 6,600; the number of fully trained teachers has increased by 5,850; the pupil:teacher ratio has decreased from 52.3:1 to 47.4:1, indicating an improvement in the primary education quality despite the enrollment increase of 246,400 pupils. Technical Education 6.13 During project appraisal, the technical education and vocational training system in Zambia was under reorganization. Despite the uncertainties then prevailing, it was agreed to include a minor technical eudcation component in the project: expanding NORTEC with 400 additional students places. The - 46 - project was expected to provide ten classrooms, twenty laboratories and workshop, together with boarding facilities for 80 students for the develop- ment of a technician training program in the mechanical, automotive and electrical areas. 6.14 In 1068 the Commission of Technical Education and Vocational Training was establisheu as a parastatal semi-autonomous body and given the responsibil- ity to organize and administer all technical and vocational training in Zambia. 1/ One of the Commission's priority objectives was to increase the training of technicians by establishing another institution for technician training in Kitwe, the Zambia Institute of Technology (ZIT) to expand NORTEC beyond the targets foreseen in the project, and to coordinate the activities on technician level training between the NORTEC and the ZIT. The Commission also proposed to change the technical training program from the sandwich course/apprenticeship system, which partly existed at NORTEC, to full-time pre-service institutionalized training at both institutions. Therefore, the Commission requested that the project program for NORTEC be changed so that technician training in the civil and electrical fields would be concentrated at ZIT and in the mechanical/automotive field at NORTEC. 6.15 The Bank did not accept the Commission's proposal to divide the technician training between two institutions and change training program at NORTEC. Furthermore, the Bank considered uneconomical the development of another large technician training institution at a comparatively short distance from NORTEC. The Government argued, on the other hand, that the project component was only a small part of a large investment program in the field of technical and vocational training. After a lengthy and at times heated debate on these issues, the Government and the Bank agreed in August 1973 on a new program for the development of NORTEC based on the following assumptions: a. NORTEC was to become the national center for the training of technicians in the fields of automotive and heavy duty vehicle repair. The facilities were also to include a small craft level program to serve the Ndola area; b. Technician and technology programs in electricity at NORTEC were to be phased out, and these programs centralized at ZIT in Kitwe, in order to take advantage of the economies of joint use of staff and facilities in the electrical- electronic cluster of technologies. A small craft program would continue at NORTEC; c. NORTEC were to become the only center offering mechanical engineering programs at technician and technologist levels. A small program at the craft level would provide for local needs. The project should accordingly provide for the addition of a thermodynamics laboratory, and a steel fabrication workshops, to round out the existing facilities; and 1/ The reorganization was mainly supported by the Canadian International Development Association (CIDA). - 47 - d. Total enrollments were expected not to exceed 700 as compared with appraisal estimates of 660 and 900 for the Commission's development plan. For this phase, the proposal would include two additional 100 bed hostel units, on an existing site. 6.16 The NORTEC construction program was completed in the end of 1978; the new hostels were ready in early 1977, the steel fabrication workshop in mid-1977 and the automotive and heavy duty workshops in mid-1978. No complete courses have been given in the new facilities. Therefore, the educational outcome of the project item cannot yet be assessed. The development of student enrollment at NORTEC has not yet reached the anticipated level: Enrollment at NORTEC 1972 1973 1974 1975 1976 1977 1978 Estimated 700 1/ 700 1/ 700 1/ 700 1/ Total 719 748 765 682 487 561 515 Mechanical Technicians 111 124 120 Automotive Technicians 76 93 161 Electrical Technicians 142 131 58 1/ Maximum enrollment according to new program of August 1973. The low enrollment since 1976 depends, however, mainly on lack of recurrent budget allocations for the students' accommodation and training, which in turn is due to the financial situation in the country (para. 5.06). The enrollment trend is pointing upward for the mechnical and automotive technician training and the electrical technician training is being phased out which is in line with the development program as outlined above (para. 6.15). - 48 - VII. BANK'S PERFORMANCE 7.01 During identification, preparation and appraisal stages of project generation, the Government and the Bank maintained a mutually fruitful dialogue. There were differences of opinion on education policy matters like introduction of diversified curricula in secondary schools, classroom/laboratory/workshop utilization and staff housing. The dialogue on these issues helped to clarify several aspects of educational policy and assisted in the efforts to reorient the sector which culminated in the 1977 education reform proposal (Annex 5). The differences of opinion between the Bank and the Government during the project generation phase did not affect the Government's commitment to the project once the negotiations were completed. Delays in implementation were caused essentially by organizational and overall country financial problems. 7.02 The Bank made a total of 20 supervision visit to Zambia during project implementation at an average interval of about five months but with a range varying from three to eight months. Most missions were organized in conjunction with reviews of other education projects in Zambia. Timing of missions was not always related to critical aspects of implementation parti- cularly in the initial organizational stages of the project. 7.03 Supervision visits achieved monitoring of progress but could do little in regard to the countywide problems such as the lack of local counter- part funds, extreme transportation difficulties, etc., which were hampering implementation. A possible exception was the introduction of direct payment procedures for imported materials and equipment which required an amendment to the Loan Agreement. This amendment alleviated the critical foreign exchange situation faced by the project. In the educational field, supervision was largely limited to monitoring the quantitative objectives of the project. 7.04 With respect to NORTEC, the disagreement between the Commission of Technical Education and Vocational Training and the Bank delayed progress on this component for about four years. The Bank's insistence on not accepting the policy change for NORTEC, while the new policy was introduced in all other training institutions, was, in Zambia, viewed as an undue interference--indeed "interference in (their) internal policies." With hindsight, the Bank position on the issue, although justified on technical grounds, was perhaps too rigid. In August 1973, the Bank and the Government, however, agreed on a new develop- ment program for NORTEC (para. 6.15) along the line originally proposed by the Government. On other aspects of the project, relationship established between the Bank through periodic visits was considered helpful by the PIU and the various Ministries involved in the project. ZAMBIA - FIRST EDUCATION PROJECT COMPLETION REPORT Implementation Schedule Year 1969 1970 1971 1972 1973 1974 1975 1976 1977 1978 1979 Quarter 1 21314 1 2 3 4 1 2 3 4 112 3 4 12 3 4 112 3 412 3 4 1 2 3 4 112 314 1 2 3 4 1121314 Consultant Architects Appointment of Consultants Survey, Designs, Working Days, Tender Documents Construction Contract Group - Region X - (Hillcrest School) 0 - Western Region M - Wester Region . .. ..... A - Northern Region N - Western Region R - Copperbelt B - Eastern Region *. E - Northern Region .* P - Barotse Region C - Luapula Region L - Southern Region K - Lusaka Region J - Central Region Teacher Training Colleges -am ee sm N0rtec. m .. .. ..*-a* ** P h a s e I 1 P h sa s I Furniture and Equipment Master lists, procurements, installations I I I Effective Date f July 15 1969 Appraisal Closing Fa Closing Date Date - 3D September. 1974 31 March 1979 Actual Implementation -- -- -- -F Panned/Contract 1st Revised Closing Date - 31 March 1977 1 New Contractor 2nd Revised Closing Date - 30 September 1978 World 8ank - 20357 ZAMBIA - FIRST EDUCATION PROJECT COMPLETION REPORT - DISBURSEMENT GRAPH Calendar Years 1969 1970 1971 1972 1973 1974 1975 1976 1977 1978 1979 Ourters 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 15.0 -- - -- - - Appraisal Porecast 0 100D - - - - - - - - - - - - - - 50 1 - --0-.-0. .--- - - - 40 00 60 - 4 Effective Date Appraisal Closing Dats 1st Revised Closing Dae July 15.1979 September 30,1974 March 31,1977 2nd Revised Cisoing Date September 30, 1978 . * * Appraisal Final Closing Dats Actual March 31.1979 World Bank - 20317 - 51 - ANNEX 3 ZAMBIA FIRST EDUCATION PROJECT COMPLETION REPORT CALCULATION OF US DOLLAR COST OF THE PROJECT a) As of June 30, 1976 (in US$ 000') Amount % Total Equivalent Category Disbursed Financed 100% US Dollars I. Civil works 9,407 40% 23,515 II. Improvement of nil - - buildings and sites III. Furniture 790 40% 1,975 IV. Professional services 1,092 40% 2,730 V. Instructional equipment 2,755 100% FE 2,755 b) As of March 31, 1979 (in US$ 000') I. Civil Works 880 10% 8,800 II. Improvement of buildings nil - - and sites III. Furniture 225 40% 560 IV. Professional services 270 40% 675 Va. Instructional equipment 775 100% FE 775 Vb. Imported building 190 100% FE 190 materials Sub-Total 41,975 Furniture and Equipment Transport in Zambia: K670 x 1.4 940 Total Project Cost 42,915 ZAMBIA FIRST EDUCATIOW PROJECT - IDAN 592-ZA RECURRENT EXPENDITURE aI la current prices. Est ated Expenditure Ministry of Education Recurrent Expenditure, 1971-79 (Evacha) b/ In constant 1968 prices. for 1974 during Appraisal 1968 1971 1972 1973 1974 1975 1976 1977 1978 1979* FUINCTIOI' prxces a b a b a b a b a b a b a b a b a bY2 PRIMARY SCHOOLS Expenditure 28 79. 23.99. 21.71m 27.00m 23.68m 28.78m 22.84m 31.22m 23.13m 34.16m 22.47m 44.71a 25.84m 45.25m 21.75. 48.40m 20.86. 51.39m 20.15. % of Total 40.2 44.5 44.5 44 6 44.6 44.2 44 2 44.8 44 8 45.3 45.3 47 5 47.5 48.8 48.8 47.8 47.8 47.6 47.6 Per pupil 35.0 32.8 29.8 34.9 30.6 35.7 28 3 36.5 27.0 39.4 25.9 48.6 28.1 47.9 23.0 49.0 21.1 51.0 20.0 SECONDARY SCHOOLS Expenditure 18 51m 11.84m 10.76. 13.93a 12.22. 14.40. 11.43m 15.71. 11.64m 16.75m 10 47m 20.96a 12.12m 19.89m 9.56m 23.34m 10.06. 23.71. 9.30m % of Total 25.9 22 1 22 1 23.0 23.0 22.1 22.1 22.6 22.6 22.2 22.2 22.3 22.3 21.4 21.4 23.0 23.0 21.9 21.9 Per student 227 219 199 240 211 243 193 248 184 234 146 267 154 242 116 272 117 273 107 TEACHER TRAINING Expenditure 1.85m 1.61. 1.46m 1.71. 1.50m 1.57m 1.25m 1.90. 1.41m 2.130 1.330 2.42. 1.40m 2.45 1.18. 2.80m 1.21m 3.37. 1.32m % of Total 2.6 3 0 3.0 2 80 2.80 2.40 2.4 2.7 2 7 2.80 2 80 2.60 2 6 2.6 2.6 2.8 2.8 3.1 3.1 TECHNICAL EDUCATION Expenditure 2.22. 5.63m 5 12m 5.80m 5 09. 5 84. 4.63m 5.646 4.18m 6.69. 4.18. 7 69. 4.45m 7.46m 3.59m 8.02m 3.47. 8.21. 3.22m 7 of Total 3 1 10.5 10 5 9 6 9.6 9.0 9.0 8.1 8.1 8.9 8.9 8 2 8.2 8.0 8.0 7.9 7.9 7.6 7.6 Per student 1407 1235 1267 1004 995 737 1234 771 1381 799 1286 618 UNIVERSITY OF ZAMBIA Expenditure 12.76m 3.70. 3.36* 3.85m 3 38m 6.39m 5 07m 6 60m 4 74. 5 89m 3 68m 8.64a 4.99. 8 00m 3.85m 9.60 4 16m 10.59. 4.12a % of Total 17 8 6.9 6.9 6 4 6.4 9.8 9 8 9.2 9.2 7.8 7 8 9.2 9.2 8.6 8.6 9.5 9.5 9.7 9.7 Per student 2363 2146 2181 1915 2848 2Z59 2450 1824 2502 1563 3363 1942 2857 1374 OTHERS-ADMINISTRATION Exoenditure 7.40. 6.98. 6.35m 8.21. 7 20. 8.08. 6.41t 8 80m 6.52* 9.79. 6.12m 8.72m 5.62. 9.76. 4.69. 9.07- 3.91. 10.91m 4.28m % of Total 10.4 13.0 13 0 13.66 13.66 12 4 12.4 12.6 12 6 13.0 13.0 10.3 10.3 10.5 10.5 9.0 9.0 10.1 10.1 GRAND TOTAL 71.53. 53.65m 48 77. 60.50. 53.07* 65.06m 51.63m 69 67* 51.61t 75.41* 47 130 94.14. 54.42m 9Z.81m 44.62m 101.230 43.63. 108.46 42.53. * Estimiate 1/ Inflation factors are received firo Goverrment Fund Consouptson Expenditure. in current Kwacha and in constant 1965 Kwacha. Table 2.03 and 2 04 from Report No 1586b-ZA 7ambia - A Basic Ecoomic Report. 2/ The figures for 1979 are calculated assifing an inflation of 102. Source MOE Education Statistics and 8an Estimates Date* May 1979 - 53 - ANNEX 5 Page 1 PROJECT COMPLETION REPORT ZAMBIA FIRST EDUCATION PROJECT LOAN 592-ZA EDUCATIONAL REFORM PROPOSALS AND RECOMMENDATIONS MINISTRY OF EDUCATION OCTOBER 1977 A. The Development of Educational Reform Proposals and Recommendations 1. A generally growing feeling that education did not produce the attitudes and skills conducive to self-reliance and national development caused the United National Independence Party (UNIP) and the Government to contemplate an overall review of the sector to determine and analyze its shortcomings. Concern arose particularly because of the growing number of primary and secondary school leavers and dropouts who remained unemployed after schooling. As part of the review exercise in 1975, teams of educa- tional experts analyzed the education systems of Cuba, Jamaica, the People's Republic of China and selected African countries. This was followed by a round of discussions and analysis. A Draft Statement on Education Reform was published and widely distributed in March 1976 in order to promote a national debate about the proposals which included drastic changes such as the intro- duction of a "rotating system" merging education in schools with supervised work in agriculture and, to a limited extent, industry. Prior to the review in late 1973, UNIP issued a document in which guidelines were provided for "national education policies for the decade 1974-1984" including 20 points, of which the following four were particularly important: (a) to restructure the system of education and provide for ten years of universal education; (b) to improve and expand the programs of adult education; (c) to develop a locally- based examination system; and (d) to merge the functions of the local and regional Councils of Education with those of the District and Provincial Development Committees. 2. After the national debate on the Draft Statement and a considerable re-drafting of the proposals, the "Educational Reform Proposals and Recommen- dations" were printed in October 1977 and issued after approval by the Central Committee of UNIP in June 1978. The paper contains an in-depth evaluation of the existing system, formulates specific proposals for action, sets priorities for future development, and outlines an investment program for the sector during the next decade. B. General Aims of the Reform 3. The aims of national education in Zambia, according to the "Educa- tional Reform Proposals", are to provide each person, within his/her capacity, - 54 - ANNEX 5 Page 2 opportunities to: (a) obtain an education based on his/her interest, abili- ties and needs to attain intellectual excellence and acquire practical skills or experience; (b) contribute to the economic and social development of Zambia; (c) learn how to participate in the national and community problems and to foster national unit; (d) develop emotionally, morally, spiritually, socially and politically so as to be increasingly able to cope with life's problems; (e) develop cultural and aesthetic appreciation; and (f) develop the spirit of self-reliance and patriotism and the sense of international solidarity. 4. The existing education structure will be modified. The most important features of the proposed new structure are: (a) Full-time education will begin at the age of seven and children will remain at school until they complete Grade 9, which is the end of the nine-year basic education program. Some will leave full-time education at this point, while others may continue with second stage programs at secondary schools, trade institutes, agricultural and other training institutes. Some of the graduates of the second stage will enter third stage programs at universities, training colleges, technical colleges, and other institutions of higher learning. The new structure will have three successive stages of full-time education as follows: 1. Basic Education. The ultimate goal is to provide a nine-year universal basic education system. Due to insufficient number of school places available at present in Grade I and Forms I (the future Grade 8), the achievement of this target cannot be accomplished in the immediate future but over a 10-15 year period through phased expansion of facilities and increased resources. As a first step during the TNDP, it will be necessary to expand facilities so that an increasing number of seven-year old children can enter Grade 1. When nine-year universal basic education is ultimately achieved, there will be a continuous program from Grades 1 to 9 with the curricula organized on the basis of six years of primary and three years of junior secondary education. 2. Second Stage. At the end of Grade 9, students will be selected to enter a full-time general education program for Grades 10-12 (presently, Forms III to V), or they may pursue specialized training programs such as the Zambian-enrolled nurses' course, trades training, or similar - 55 - ANNEX 5 Page 3 courses. Some of those who leave full-time education at this stage may pursue training programs in various sectors of the economy and/or take advantage of continuing (part- time) education programs. 3. Third Stage. Within this stage of education, there will be a wide range of fields of study for Grade 12 graduates, such as advanced spe- cialized programs leading to diplomas in teach- ing, technology, nursing, agriculture, etc., and programs at university level. Some candidates for these programs would be Grade 9 graduates who, through study or other appropriate training, may meet entry requirements to such programs. (b) Continuing Education. This part of the education system will cater to adults or youths who have left full-time education or may never have entered it, but wish to engage in education and training by part-time study. The following are the principal areas: (1) literacy education designed to achieve universal literacy through intensification of the ongoing programs; (2) part-time study, i.e., formal education, by correspondence and other means, to provide access to the various levels of the system; and (3) in-service education aimed at increasing the understanding, competence, and productivity of persons in the world of work and to enable workers to improve their vocational and professional skills. 5. An assessment of the required investment for introducing a nine- year universal basic education system is based on the assumptions that at present only: (a) about 85% of the eligible age group have the opportunity to be enrolled in Grade 1; (b) about 62% of the eligible group (i.e., those completing Grade 4) enter Grade 5; and (c) 12% of the eligible group (i.e., those completing primary education or Grade 7) enter Form I. It is apparent that the task of providing nine years of basic education to all children is immense. To enroll every child between the ages of seven (entry to Grade 1) and sixteen (end of Grade 9) in school today would require the following additional resources: Grades Grades 1-7 8-9 Total Additional school places 56,744 187,858 244,602 Additional teachers 1,190 7,827 9,017 Additional annual recurrent funds (in millions) K 2.7 K 44.3 K 47.0 (constant 1977 prices) - 56 - ANNEX 5 Page 4 The capital costs of providing the additional school places and teachers' houses would be in the region of K591.87 million (at 1977 prices), not in- cluding the cost of building additional capacity for the teachers' colleges. Furthermore, during the course of the national debate on the Draft Statement on Educational Reform, it was clearly indicated that "Zambians do not wish to accept quantitative expansion at the expense of quality of education". This indicates that, in the opinion of the education establishment, it would be unrealistic to force any significant reduction in unit costs in the short term because such a reduction would cause standards to decline. Such a con- clusion, however, is yet to be demonstrated and the Government ought to give serious consideration to the introduction of cost recovery and cost reduction measures. 6. At the second stage of education, there are various programs such as Zambia enrolled-nurses' course, agricultural assistants' course, medical assistants' course, veterinary assistants' course, forestry assistants' course, primary school teachers' certificate course, trades certificate courses and several others. Grade 9 will be the minimum entry level to second stage programs. A Council for Second Stage Education will be estab- lished to determine inter-relationships, equivalences and creditations between institutions offering general education at this level and those offering specialized and vocational education. 7. At present, the senior secondary program forms part of the five- year secondary school program which begins at Grade 8. This will continue to be linked in curriculum with the program of Grades 8-9. Senior secondary education will continue to be a preparatory program for entry into tertiary institutions, such as universities and training colleges. In addition, this program should adequately prepare students for the world of work. 8. One of the major aspects of Zambia's technical education and voca- tional training policy has been to concentrate on full-time pre-employment training in technical colleges and trades training institutes extended by on-the-job training in industry. This approach is in contrast to the appren- ticeship training scheme which in Zambia is not considered suitable primarily because of job immobility, such schemes bring about. The current policy of technical education and vocational training will continue and the Department of Technical Education and Vocational Training will expand and consolidate its present training activities and enrollment. 9. Due in large part to financial constraints, for the foreseeable future, only a small fraction of the Grade 7 graduates will be able to continue with full-time education up to the end of Grade 9. There is need for well-organized skills training programs in a variety of fields. Although literate and able to reckon, the present Grade 7 school leaver has no prac- tical or employable skills to immediately fit him into any job. In conjunc- tion with local authorities and other agencies, the Government should devise definite skills training programs for school leavers who cannot proceed to other types of education. - 57 - ANNEX 5 Page 5 10. The third level of education includes a range of separate programs administered by different institutions or agencies. Successful promotion of Grade 12 or other equivalent programs will normally be a requirement for entry to third stage education. Normally, Grade 12 graduates will have completed their National Service, or would have been granted exemptions, before they proceed to colleges, universities or joining the world of work. Some of the Grade 12 graduates may further their education by part-time study. 11. One of the most pressing problems confronting the education system today is the teacher shortage. In view of the continuing decline of trained teachers, present enrollment in teacher training should be increased through: (a) expansion of existing colleges where this is possible and appropriate; (b) building new teachers' colleges as funds become available; (c) conversion of some of the existing facilities into teacher training colleges where possible; and (d) establishment of teacher training units in some of the existing educational institutions. C. Investment in Education 12. Investment in education during the Third National Development Plan (TNDP) period (1979-1983) as proposed by the Education Reform documents amounts to K180 million (1977 constant prices) for capital development. (a) Primary education. An additional 26,270 places in Grade 1 and an additional 45,960 places in order to expand opportunities at Grades 4 and 5. (b) Junior secondary education. A total of 11,040 Grade 8 places should be created. (c) Senior secondary education. No additional places will be created during the TNDP since the strategy will be to concentrate on expansion of the primary and junior secondary education towards the achievement of universal basic education. Modification and improvement to laboratories, workshops, home economics and practical rooms in existing schools to accommodate the new Grade 10 streams are to be made. (d) Teacher education. Approximately 1,900 places should be created in the primary sector and 750 places in the secondary sector. (e) Technical education would require expansion and extension to existing facilities and three new Trades Training Institutes are planned to increase the total number of students from 4,990 to 6,970. - 58 - ANNEX 5 Page 6 (f) Youth development would be promoted through programs focusing on production training, community based skills training projects, and youth production schemes. 13. In order to accomplish the program in the Educational Reform Proposals, an investment of K180 million or US$220 million equivalent is required during the TNDP period (1979-1983). However, due to budgetary constraints, the amount allocated to education during the TNDP is likely to be significantly less than K180 million. Thus the targets of the Educational Reform will not be reached until after 1983. The proposed investment figures given in the Educational Reform Proposals paper, however, provide a quantita- tive indication of the high priority the Government places on improvement of basic education including teacher training. D. Recurrent Cost 14. Recurrent expenditures for the implementation of the above-proposed program are estimated by the MOE to be about K48 million (in 1977 constant prices) over the period 1979 to 1983. This figure may represent an under- estimate since it does not account for expenditures required to carry out additional programs in special, continuing, educational and library services. In 1977, recurrent education expenditures as a percentage of Government recurrent expenditures was about 14% as compared with 17% in 1976. In order for the Government to carry out the measures foreseen in the Educational Reform Proposals, recurrent expenditures would have to grow at 9.5% p.a. in real terms between 1979 and 1982. If the ratio of Government expenditure to GDP remains at about 39% and GDP grows by only 2.5% p.a. between 1978 and 1981, in 1982 Government expenditures on education as a percentage of GDP would report on extreme and very rapid increase--from 5.5% to 7.0%. The projected rise in growth rate of GDP is also somewhat over-optimistic. This further indicates that the implementation of the educational reform will require a longer time frame for implementation than presently estimated. The Government is fully aware of the severe fiscal constraints and intends to readjust specific targets to finance availability. asedoi teetaday stej ssSA ~34espI 1912 qet p~ o53119 11 i19.'9 *spz 'st6 .eJOe • 11l • SU9 • 1 • 901 - 0U1 l 9°! • t •t • 0'S -ltt net - 9,91 - 619 • 11 9*01 - 9*11 - VCit • Ytc • OZ, -t 1 t °1" £*91 sit t6t 115 rgel V6 *oi 001 a*1l r 5 t ' g'6 i*t s 9* 0'%i - B,tt 9os* $'i 9l t e 69,5415 600i 5'1 '6 c"6 tii L'it Vovl 1' ' tC9, 6°0t tilt Vte z'r01 9t'it 6 ,st 6'91 tI egs 9" S t L' '£ 0*l 6'9 t*01 6*6 t£ til WL l'et 0*9 9' 0°t O'et et t 961 &'Z% '#- i 5 i0 0*ti 9,9 111 C£ I' 69 0*it 9*0t 1,61 O t t'il 0*9 6*tz 0*et 66 6'tt tia1 W°N 0u1 fos l9 " 59 tie '9 t 99t 9V £t St* 9' VCI tV£t &'9L 9°%£ 0C6( 6C96 9'99 *6 Vti i 6 06 6£9 19 9ti 91l9 0'9 69 I'l 0°51 1it§ 91 6*g 1 6'! 91< 010, O'OS 1'5 C I6i ilt U *1 (5 011 0'09 £55 'L <'1 6° 11 t'9 <'9 ti 01 t Il tl61 0°i 0O 1'z5 9O, OEC tI 9et lt? 01p 0,9t 9'99 0l £ ' 6.1 I' 66 011 9'E 1'11 9°i Ei O°L 00t 6°l 9°C i1t Utt 6*t i 55 205 V'E L*1 1° 0° 51 6*1 95 '6 9i6 IØi I'5 0'i <CL 0%,U Alt9 6V 0o6 'ii t'l 5 t let 9,111, 5Vfl C( 6*t 1'9 9*£ 5S . 9 9 St1 9t I 9 t*99 0,0( 4'9 9 l 'oi <ci 1iS lig 9'V 0*6z i 6° V 2' 619 '9 ilt 9Vt 69 I9 °" o' Ulle t'C ø96* 9' 9° 1st 5t w'sc i*9< 9° 9° 9' 9' rs i' 'o, n'0 0 i 0°i V'S 'Il 0°,0 0'ti £961 ' n- -~~--- demos,a *9y 3o *au *aeoo*ag "mes *mooq,g fbl.d *e Je-A ( .0001 J a») 91l6,_@3 9'tJidO03t .•- Pii 8966 of tulead#9 1Tan F4. -11ie. d e "ag t tal 5i mu " i UDiIiiIiii issi U - 60 - ANNEX 7 PROJECT COMPLETION REPORT Page 1 of 2 ZAMBIA FIRST EDUCATION PROJECT Enrollments in Project Schools TOTAL PLANNED ENROLLMENT TOTAL ACTUAL CODE LOCATION APPRAISAL for 1979 ENROLLMENT in 1978 (1) New Lecondary Schools 101 Kasama (boys) 810 829 102 Chinsali (Girls) 620 540 103 Chipata 810 759 104 Nyimba 620 676 105 Kitwe: Ndeke 930 922 106 Chingola: Kabundi 930 930 107 Ndola: Lubuto 620 708 108 Wansa 620 655 109 Kabwe: Bwacha 930 838* (2a) Ex tensost _eodrYShl: 201 Isoka 930 915 202 Mungwi 930 951 203 Chinsali* ienaeth 1,aunda 930 1014 204 Kasama Girls 930 962 205 Mbala 1120 961 206 Nporokoso 1120 976 207 Luwingu 1120 871 208 Chipepo 735 790 209 Livingstoae; Linda 930 985 210 Hillcrest 1070 880' 211 Kalomo 1120 972 212 Namwala 1120 1028 213 monze 735 785 214 Chadiza 1120 931 215 Chizonbwe 735 785 216 Lundazi 1120 760 217 Petauke 1120 948 218 liasala 1015 1142 219 Chifubu 930 973 12.... - 61 - TOTAL TOTAL ENROLAN ENROLLMENT, 1978 ANNEX 7 CODE LOCATON (PLANNED) (ACTUAL) P 2 of 2 220. Kansenshi 1120 1214 221 Chiwala 930 964 222 Luanshya (Boys) 1120 1098 223 hpatamatu 930 941 224 Roan Antelope 930 996 ' 225 Luanshya (Girls) 930 859 226 Kitwe Boys 1120 1077 227 Kitwe Girls: Helen Kaunda 1015 837 228 Chamboli 930 947 229 Nukuba 735 846 230 Mindolo 620 662 231 Iufulira 1240 1088 232 Kantanshi 1120 1065 233 Chingola 1240 1233 234 Chikola 1120 1070 235 Kalulushi 1120 1108 236 Chililabombwe 1120 1218 237 Kalabo 1120 .929 238 Mankoya: Kaoma 1120 947 239 Kambule 810 877 240 Senanga 1120 955 241 Sesheke 1120 940 242 Kawambwa 735 870 243 Mbereshi: habel 6haw 810 719* 244 Mwense 930 969 245 Nchelenge 1120 960 246 Sanfya 1120 991 247 Balovale: Zambezi 1120 945 248 Mvinilunga 1120 891 249 Solwezi 735 878 250 serenje 930 960 251 Mumbwa 1120 995 252 Mkushi 1120 1043 253 Libala 930 940 254 Kabulonga (Boys) 1120 1174 255 Kamwala 1120 1155 256 Munali 1015 1029* TOTAL 63395 60876 * ERo11ment still progressing. Source: MOE, Zambia, Education Statistics and Zambia First Education Project Staff Appraisal Report. Date: May 1979 PROJECT COMPLETION REPORT ZAMBIA FIRST EDUCATION PROJECT Teachers in Secondary Schools Demand and Supply As Estimated During Appraisal in 1968 and as Accomplished to 1977/78 Enrollments Student/ Zambian Teachers Estimated Projections Teacher Output from Number of '000 Ratio In Post H.T.T.C. University Expatriates Actual Year Appraisal Accomplished Appr. Accom. Appr. Accom. Appr. Accom. Appr. Accom. Required In Post 1968 39.0 42.4 22.0 198 1578 1969 47.5 48.2 25.9 198 195 1639 1878 1970 55.7 52.5 25.9 22.6 198 292 137 1957 2035 1971 66.2 56.0 25.9 22.1 335 337 88 72 40 41 2226 2195 1972 68.7 60.0 25.9 22.4 463 440 150 102 80 54 2195 2239 1973 73.6 61.4 25.9 22.1 693 516 150 153 140 80 2154 2246 o. 1974 81.7 65.8 25.9 22.4 983 713 325 223 230 135 2177 2319 1975 88.2 73.0 25.9 23.5 1538 966 325 282 360 191 1874 2135 1976 92.7 78.8 25.9 23.3 2223 1277 325 304 500 155 1363 2100 1977 100.3 83.8 25.9 24.6 3048 1484 325 44011 500 120 832 1926 1978 108.2 85.5 25.9 3873 325 500-1 500 135 313 1979 114.9 25.9 4698 325 500 - 1980 119.8 25.9 5523 325 500 1/ Including TVTC (Industrial Arts and Commerce Teachers) and NRDC (Agriculture Teachers). Source: Date: May 1979 - 63 - republic mf mbia - ministry of education APPENDIX I I l"W -I n dLi4bt[dn Jr9ct  - 65 - republic of mambia - ministry of education lusaka 1977 evaluation report on zambia world bank education project Typesetting by: Department of Technical Education and Vocational Training. 1977 Layout and photographs by: Design Section Ministry of Education Printing by: Zambia Printing Company Lusaka 1978 - 67 - CONTENTS Page References . . . . . . . . . . . . . . . 68 Abbreviations. . 69 Synopsis 70 Members of the Evaluation Team . 71 Acknowledgement 72 Presentation of the Project . . . . . . . . . . . 73 List of major evcnts . . . . . . . . . . . . 74 Part 1: Introduction and historical background 1.1 Scope of Evaluation . . . . . 77 1.2 The role of NORAD . . . . 77 1.3 Organisation of Evaluation Team 78 1.4 Stages of Project Development . . 79 1.5 The present situation . . . . 80 Part 2: Policies and decisions 2.1 Educational aspects . . . . . . . . . . 85 2.2 Architectural aspects . . . . . . . . . 86 2.3 Technical aspects . . . . . . . . . . 87 2.4 Managerial aspects . . . . . . . . . . 90 2.5 Financial aspects 92 2.6 The role of the Ministry of Education and the Ministry of Power, Transport and Works . . . . . . . . . . . . 94 2.7 Information available on Zambian conditions . . . . . . . 95 2.8 The role of the Hillcrest pilot scheme . . . . . . 98 2.9 Documentation of the Project . . . . . . . . 100 Part 3: Evaluation 3.1 Educational aspects . . . . . . . . . . 105 3.2 Architectural aspects . . . . . . . . . . . 114 3.3 Furniture and fixtures . . . . . . . . . . 119 3.4 Technical aspects . . . . . . . . . . . 120 3.5 Maintenance . . . . . . . . . . . . . 124 3.6 Project documentation . . . . . . . . . . . 126 3.7 Project management . . . . . . . . . . . 127 3.8 Cost analysis . . . . . . . . . . . . . 134 Part 4: Conclusions and recommendations 4.1 The Team's dilemma . . . . . . . 147 4.2 Completion of the Secondary schools . . . . 147 4.3 Future educational planning in Zambia . . . 149 Part 5: Appendices . . 153 - 68 - REFERENCES (1) Educational Priority Projects for Development: Zambia. UNESCO. Paris, 1966. (2) Appraisal of an Education Project in Zambia. International Bank for Reconstruction and Development. Washington, March, 1969. (3) Zambia Education Project. Working Papers. International Bank for Reconstruction and Development. Washington, February, 1969. (4) Contract for Professional Services. Zambia World Bank Education Project. Lusaka/ Hovik, December, 1969. (5) Project Memorandum Draft. Zambia World Bank Education Project. Norconsult A/S. Hovik, June, 1969. (6) Loan Agreement (Education Project) between Republic of Zambia and International Bank for Reconstruction and Development. Lusaka/Washington, April, 1969. (7) General Conditions Applicable to Loan and Guarantee Agreements. International Bank for Reconstruction and Development. Washington, 1969. (8) Report on Preliminary Studies. Zambia World Bank Education Project. Norconsult A/S. Lusaka, March, 1970. (9) Construction System Report. Zambia World Bank Education Project. Norconsult A/S. Lusaka, November, 1970. (10) Supplementary Report to Relevant Chapters in Preliminary Studies Report of March, 1970. Zambia World Bank Education Project. Norconsult A/S. Lusaka, February, 1970. (11) Construction System Note. Project Director, Zambia World Bank Education Project. Lusaka, February, 1971. (12) Report on Preliminary Project. Standard Items. Zambia World Bank Education Project. Norconsult A/S. Lusaka, April, 1971. (13) Report on Preliminary Project. Room Units. Zambia World Bank Education Project. Norconsult A/S. Lusaka, February, 1971. (14) Educational Developments in the Second National Development Plan (1972-76). Speech by the Hon. Minister of Education. Lusaka, February, 1972. (15) The Republic of Zambia Third Education Project, Working Papers. International Bank for Reconstruction and Development. Washington, May, 1973. (16) Loan Agreement (Third Education Project) between Republic of Zambia and International Bank for Reconstruction and Development. Washington/Lusaka, June, 1973. (17) Information Related to the Third Project, Ministry of Education. Lusaka, undated (1973). (18) Water Supply Report, Updated. Zambia World Bank Education Project. Norconsult A/S. Lusaka, May, 1973. (19) Zambia III Secondary and Teacher Education: Covering Notes for Worksheets. Supplemental to World Bank's Draft Document. Ministry of Education. Lusaka, March, 1973. (20) Contract for Professional Services for Additional Facilities (Zambia III). Zambia World Bank Education Project. Norconsult A/S. Lusaka, April, 1974. (21) Zambia World Bank Education Project. Secondary Schools. Approximate Cost for Types of Buildings, Approximate Split of Costs. Norconsult A/S. Lusaka, August, 1976. (22) Educational Statistics (1971-1975). Ministry of Education. Planning Unit. Lusaka, 1972-1976. (23) Annual Statement of External Trade 1969. Central Statistical Office. Lusaka, 1970. (24) Monthly Digest of Statistics, Vol. XII, Nos 5/6, May/June 1976. Central Statistical Office. Lusaka, 1976. (25) (Loan Application to the International Bank for Reconstruction and Development, Volumes I-IV). Ministry of Education. Lusaka, 1968. - 69 - ABBREVIATIONS The following list refers to commonly used abbreviations not explained in the text. The abbreviations are explained in alphabetical order. CBC (system): 'Coordinated Building Communication'. A computerised management and control system for building projects. CSO: Central Statistical Office. EDP: Electronic Data Processing. FNDP: First National Development Plan (1966-70). GRZ: Government of the Republic of Zambia. IBRD: International Bank for Reconstruction and Development. MOE: Ministry of Education. MSB: Mechanical Services Branch (of the Ministry of Defence). NORAD: Norwegian Agency for International Development. NORTEC: Northern Technical College (Ndola). PWD: Public Works Department (Ministry of Public Works). RPS: Report on Preliminary Studies (see References, item 8). SNDP: Second National Development Plan (1972-76). TDP: Transitional Development Plan (1964-65). TTC: Teacher Training College. UNZA: University of Zambia. WHO: World Health Organisation. Zambia I: The first IBRD financed education project (1969). Zambia II: The second IBRD financed education project (1973). Zambia III: The third IBRD financed education project (1973). ZWBEP: Zambia World Bank Education Project. Designation for the Project under evaluation comprising Zambia I and part of Zambia III. - 70 - SYNOPSIS This collection of papers on the evaluation of the Zambia World Bank Education Project (ZWBEP) represents the result of a research work carried out within a five-month period by members of a special Evaluation Team set up by the Ministry of Education in Zambia. The intention was to establish some critical points of view for consideration by educational planners, designers and foreign agencies for international development, with the object of achieving a greater understanding of the 'total educational planning' and its component parts. It is a report on specific investigations and their findings from a selected number of educational institutions included in the World Bank Project. From various standpoints criticism has been raised to the fact that an evaluation was undertaken before the scheme was totally completed, or at least before the Consultants' final report was presented. This opinion is not shared by the Ministry who found it imperative to embark on the evaluation at a time when experience gained from the Project could serve as a guide for the educational policy formulation in the third National Development Plan (TNDP). The documentation necessary for the actual evaluation was already available in full and the final stage of the Project would not bring essential news into light which could have justified further postponement of the exercise. The time factor has indeed been a limitation to our activities but we do believe that all essential information has been collected and discussed in a dignified way. We are aware that the Teacher Training Colleges component of this exercise has not been subject to the same exhaustive investigations as is the case with the Secondary schools, although some comparative facts in terms of design and costs have been put into perspective. Conclusions and recommendations in this report are based on the Team's findings and observations and do not necessarily coincide with the general impression of the Project as felt by society. We trust that we have been fair in our assessment and have had no intention to blame anybody involved in the execution of the Project. The responsibility for the opinions expressed (as well as for possible errors) rests entirely with the Team itself. - 71 - MEMBERS OF THE EVALUATION TEAM Ministry of Education . Mr P. Sii (Chairman) Senior Planning Officer Mrs C. Allen Inspector of Schools (Homecraft) Mr J. Bbwaani Senior Planning Officer Mr J. Banda Senior Planning Officer Mr F. Kruger-Johnsen* Senior Architect Mr R. Lupahla Chief Buildings Officer Mrs F. Mulenga Inspector of Schools (Nutrition) Mr S. Mulenga* Inspector of Schools (Industrial Arts) Mr M. Thomas* Inspector of Schools (Science) Mr K. Utheim* Senior Architect Ministry of Development Planning . . . . . Mr T. Kleven* Construction Economist Ministry of Public Works . . Mr A. Gotley Senior Architect, Buildings Branch Norwegian Agency for International Development (NORAD) . . . Mr F. B0, Architect (Associated on short-term basis) *Members of the Drafting Committee. - 72 - ACKNOWLEDGEMENTS Practically all work in this Report has developed from site visits, consultations with teachers and educational administrators and from thorough studies of basic planning papers and documents related to the ZWBEP available in the Ministry of Education. The Evaluation Team is particularly grateful to the Heads, Principals, staff and pupils at the institutions visited for their kind co-operation and interest in this work. During the evaluation study the Team has been ably supported by the Project Unit as a whole and special thanks are due to the Supervisory Engineers who provided fresh insight into the various problems 'on site' by describing their experience during the implementation of the Project. We are most grateful to the Ministry of Development Planning who provided us with a construction economist with the effect that the important technical/financial aspect has been dealt with in a very detailed and convincing way. The support received from NORAD who supplied the services of a short-term consultant architect has been of great benefit to the evaluation exercise and the final result. A lot of information from Oslo-based sources was channelled through Mr Finn B6to the Team and we are in this connection especially thankful to planners at Norconsult's offices in Norway and Lusaka for their co-operation in this respect. Dr Trevor Coombe, Head of the Planning Unit in the Ministry of Education, provided invaluable assistance on the final, completed manuscript, for which the Team is most grateful. - 73 - PRESENTATION OF THE PROJECT The 'Zambia World Bank Education Projects' (Zambia 1, II and III) are, as indicated, educational development projects, assisted by the International Bank for Reconstruction and Development (IBRD) with the Ministry of Education as the Client. Zambia I and a major part of Zambia III concentrate on a substantial extension of the secondary school sector and the facilities provided in the Teacher Training system of the country, while loan funds under Zambia II have been used entirely for University development. In December, 1976, a fourth loan amounting to K1O.8m was approved by the World Bank. This loan will assist the expansion of agricultural extension work and the Educational Services Centre in Lusaka, both of which were also included in Zambia III, as well as aiding the development of Business Studies in institutions of the Department of Technical Education and Vocational Training. Zambia I was negotiated in Washington early in 1969, and comprises improvements, equipment, furnishing, new construction and extensions to existing buildings in, respectively: 9 new Secondary schools 56 existing Secondary schools 4 Teacher Training Colleges 1 Technical College (NORTEC) The estimated cost of Zambia I and the relevant part of Zambia III is calculated at approximately K46.1m by mid-1976, of which the World Bank loans will cover K23.8m. The Norwegian-based firm, Norconsult A/S, Consulting Engineers, Archituts and Economists, were appointed consultants for the planning and design of the Secondary schools. The extensions to the Teacher Training Colleges were undertaken by the then Ministry of Power, Transport and Works (Buildings Branch), while the responsibility for the Technical College rested entirely with the private firm, Peover, Cameron-Smith and Watchorn, Chartered Architects and Civil Designers, Ndola. Construction work started in 1971 and has, except for three of the Teacher Training Colleges and a minor part of the Secondary schools, not yet been fully completed. LIST OF MAJOR EVENTS - 74 - Project development Action Course of Events Year UNESCO Identification Mission March, 1966 UNESCO Preparation Mission March, 1968 GRZ Loan Application to IBRD (Zambia I) 1968 IBRD Worksheet preparation January, 1969 IBRD Appraisal Report March, 1969 GRZ-IBRD Loan Agreement for Zambia I signed April, 1969 NORAD The Norwegian Government officially informed about ZWBEP April, 1969 GRZ-Norconsult Contract for Professional Services for Zambia I signed December, 1969 GRZ-NORAD Norway financially involved in uie ZWBEP January, 1970 Norconsult Report on Preliminary Studies March, 1970 MOE-Norconsult Approval of Room Unit and Construction System February, 1971 Norconsult Construction work on first project school started July, 1971 GRZ Loan Application to IBRD (Zambia III) April, 1973 IBRD Working Papers for Zambia III May, 1973 GRZ-IBRD Loan Agreement for Zambia III signed June, 1973 GRZ-Norconsult Contract for Professional Services for Zambia III signed April, 1974 MOE Evaluation of ZWBEP June, 1976 Part One  - 77 - 1. INTRODUCTION AND HISTORICAL BACKGROUND 1.1. Scope of evaluation The Ministry's intention to undertake an evaluation of the Zambia World Bank Education Project (ZWBEP) dates back to August, 1974, but due to unavoidable reasons, of which the comprehensive Educational Reform work is the most important, it was delayed until mid-1976 when this exercise started in earnest. The major aim of the evaluation is to assist the Ministry of Education in the planning and design of future projects, to enable the Ministry to improve project management procedures, and to assess the new school building system employed in the ZWBEP and its future use. The objective can be achieved by a detailed examination of the product by illuminating the educational, technical and financial implications connected to this Project. It is evident that most large-scale projects contain a considerable amount of planning weaknesses and unforeseeable obstructions to the effect that it is very difficult to keep within the initial cost frame and time schedule. In this way, ZWBEP is a valuable example for intensive study and, obviously, a lot can be learned from mistakes and successes in the implementation of this vast programme of educational expansion. In undertaking the task, the Ministry of Education has been fully supported by its two main partners in the executiob of the Project, namely, the International Bank for Reconstruction and Development (IBRD) and the Norwegian Agency for International Development (NORAD). Especially the l.tter has been eager that an evaluation should be done and required assurance to this effort before they would agree to extend additional financial support to cover part-cost of the increased consultants' fees due to excessive delay in the building programme. In view of the tremendous size of the Project and the relatively short evaluation period, it was impossible to pay visits to all educational institutions included in the scheme, and a selection of representative schools and colleges was made. The criteria applied in the selection procedure were: as many different types of schools as possible, as many categories of schools as possible, in as many regions as possible, which also could give an idea of the quality of workmanship by different contractors operating in various regions of the country. The institutions visited are listed in Appendix A. Included in the ZWBEP is also the Northern Technical College situated in Ndola. However, this component of the Project has not been incorporated in the evaluation due to a complicated background and implementation history. It was felt too time-consuming to concentrate on this exercise, as the Team would have had to examine a load of historical facts which have hampered this project seriously. If considered valuable, a separate assessment could be undertaken at a later stage. 1.2. The role of NORAD Joint co-operation between Zambia and Norway on technical assistance was introduced in 1966 and recruitment of personnel through the Norwegian Agency for International Development (NORAD) started the following year. Thus, NORAD has been in a good position to follow the development of the country since Independence and was, therefore fully aware of the Government's desire to give the educational sector a boost to meet the manpower needs of the nation The number of Norwegian teachers recruited for Secondary schools increased substantially during the first years and, when ZWBEP became a reality in 1969, NORAD agreed to support it with necessary technical personnel, in order to strengthen the Ministry of Education by the setting up of a Project Unit. As a close observer of the ZWBEP, NORAD has followed the scheme with great inteiest and has on several occasions provided additional funds to keep the Project running. It is, therefore, understandable that NORAD at this time has welcomed the idea of an evaluation as a necessity to get feed-back on the organisation's involvement in, and policy for, aid programmes in developing countries in general In connection with the last country programme discussions between Zambia and Norway held in Lusaka in April 1976, the NORAD delegation agreed to recruit a short-tecm consultant architect to undertake investigations in Norway by collection of relevant material for the evaluation before joining the Lusaka-based 'leam. - 78 - 1.3. Organisation of Evaluation Team The Evaluation Team was set up and co-ordinated by the Development and Planning Unit, a department of the Ministry of Education responsible for the physical planning of educational facilities in Zambia.* The Team comprised architects, educational planners, inspectors of schools and a construction economist. The Team was, for practical reasons, divided into two sub-groups with responsibility for the educational and the technical aspects, respectively. Both groups were planned to consist of about 6-8 persons assigned different tasks within their frame of activities. Terms of reference The Evaluation Team worked out its own Terms of Reference as listed below. The Team should, within a five-month period: Outline and assess the educational policy at the initiation of the ZWBEP. Outline the planning targets for the Project. Outline the design and planning criteria as set forti in the Working Papers, the Client's Brief or any other relevant documents. Outline the status and the capability of the building sector at the initiation of the Project. Investigate and assess the decisions taken on educational, architectural, fechnical, financial and managerial aspects as a basis for the planning and design of the Project and its execution. Analyse and evaluate the final product, in light of. visits to schools, the findings described above, and any other relevant consideration. Report its findings in writing and reach conclusions and make recommendaLions for the benefit of future planning of similar large-scale projects undertaken by the Ministry of Education. Work plan Initially the evaluation exercise was planned to be undertaken within a three-month period of concentrated action with a deadline around August/September, 1976. Due to various reasons, the daily duties of the participants being the main one, it was impossible to cope with the first-time schedule set up and subsequently an extension was necessary. The first general meeting to establish the Evaluation Team took place in the Ministry of Education on 11th June, 1976. At this meeting the purpose and scope of evaluation was discussed and the procedure for the implementation of the exercise laid down. A great deal of working documents had already been prepared for this meeting by some membeis of the technical group who were appointed to generate basic material for consideration in plenary The first part of the evaluation exercise involved an internal planning period with the intention of giving all members of the Team a reasonable span of time to be familiar with all available documents on the Project. Basic data and documents and the Ministry's files on this issue were thoroughly studied and formed a valuable background for both groups before they entered into the actual tour programme for investigations in the field. Site visits The groups toured the country during July and August but did not go together as this proved extremely difficult to arrange. The consultant architect from Norway associated with the technical group was unable to participate in this group's first tour scheduled for the Copperbelt Region but did the rest of the tours. This also applies to the construction economist who joined the Team at a later stage. *The Development and Planning Unit comprised five sections Statistics, Planning, Design, Buildings and Purchasing and Supply In August, 1976, the latter three sections were transferred to the Ministry's Administration Section. - 79 - More than 100 people, consisting of students, teachers, caretakers, boarding masters, Heads and senior officers associated with the Project were interviewed but it was difficult for most of the people to make objective comments as the facilities have been in use only for a short period. Individual reports were made from all tours as a basic reference for further use. A suggestion to make separate reports from every institution visited was discussed but eventually deemed unnecessary as an overall conclusion on the educational and technical findings in any case would be needed. 1.4. Stages of Project development The proposal to finance certain sectors of educational development in Zambia by securing a capital loan from the International Bank for Reconstruction and Development (IBRD) was first discussed in 1965. At that time Zambia was in the middle of its 'Transitional Development Plan' period introduced shortly after gaining independence in 1964. The result of these early discusions is what today is called the Zambia World Bank Education Project and the real inauguration of the Project dates to February/March, 1966, when a UNESCO mission visited Zambia. The purpose of this Identification Mission visit was to identify the priority needs for education. Detailed examination of various projects within the application for World Bank loan funds was undertaken and a comprehensive report was made and considered by educational planners in Zambia. A long period elapsed, however, before the Project in its present form took place. During this period a dialogue went on between the Government of the Republic of Zambia and the World Bank - a dialogue which evolved into a heated discussion due to divergencies in the interpretation of education in general, the scope of the Project and the definition of items for which - in line with its policy for financial assistance to education in developing countries - the Bank would provide loan funds. The Ministry of Education was unhappy with some of the policy changes demanded by representatives of the Bank as a condition of loan assistance. Educationists considered that some of the Bank's views were professionally suspect. At the political level there was considerable resentment at what was interpreted as the Bank's unwarranted attempts to influence domestic policies However, the Government needed external capital assistance towards the First National Development Plan (1966-70). In due course the Bank was requested to arrange for a mission to visit Zambia to help the Government prepare a formal loan application for assistance to education. The Project therefore really came alive only in February, 1968, when a UNESCO Preparation Mission arrived in Zambia. The mission worked closely with the Ministry of Education and prepared a highly ambitious proposal for submission to the Bank. This request to the World Bank called for a loan comprising the construction of twenty new Secondary schools and extensions to fifty-six existing Secondary schools, the construction of three new Primary teacher training colleges and a new Secondary technical school, the expansion of a technical college and a higher teacher training college, and some extensions to the University of Zambia. In April/May, 1968, a World Bank Appraisal Mission visited Zambia. Apart from comprehensive discussions on curriculum and educational policy - necessary to establish the shape and size of each of the schools in the Project - the appraisal involved visits to nearly all sites, discussions with Chief Education Officers, Heads, Members of the Inspectorate and the School of Education at the University of Zambia. From May, 1968, to the end of that year, the Project was planned in detail in Washington and the World Bank's worksheets were prepared and presented to the Ministr. of Education late-January, 1969. The Bank agreed to a Project which was substantially smaller than the original request. Insufficient justification was found for eleven of the Secondary schools and the three new Primary teacher training colleges. The University component was cut out for funding under a separate project (Zambia II). However, during negotiations the Government succeeded in persuading the Bank to accept the addition of a major item for improvements to the existing schools in the Project. In accordance with Article V of the Loan Agreement (6) a Project Unit with necessary power for execution of the Project was established in Lusaka. Personnel for this Unit, a distinct arm of the Ministry of Education, were recruited by NORAD on request from th,! - 80 - Zambian Government. The Unit forms the co-ordinating link between the Ministly, the Consultants and contractors, with the responsibility to ensure that the Client's wishes are met within the terms of the Loan Agreement. The Norwegian-based firm, Norconsult A/S, Consultant Architects for the secondary school component, came to know about the Project at an early stage and brought themselves into the picture in 1968 when the firm approached the Government and expressed their interest to undertake the Consultants' work. The firm was internationally known and had experience from other projects carried out in East African countries, a minor part of them with World Bank assistance. However, these projects could not be compared with ZWBEP in terms of size and capital costs, this Project probably being the largest one ever executed in Africa. Norconsult A/S were approved as being capable Consultants by the World Bank and the client Ministry and a 'Contract for Professional Services' (4) was signed on 11th December, 1969. In a meeting of NORAD's Board of Directors held at NORAD's headquarters on 14th December, 1969, three days later, various possibilities for financial participation in the Project were considered and a month later NORAD agreed to recruit and pay for the services of necessary Supervisory Engineers assigned to the Project Unit as well as to covet up to 70 per cent of the consultants' fees. The Zambian decision to employ Norconsult A/S for the whole secondary school component of the Project has undoubtedly been a decisive factor in the generous financial support received from the Norwegian Government through NORAD. After a short period reserved for 'Preliminary Studies' the detailed planning was commenced and construction work on the first group of schools started in late-1971. A model of the building system was found to be of practical value prior to the actual Project, and a full-scale room unit model was erected at Munali Secondary School in Lusaka in the early stage of the design period. The intention of this model was to enable the Consultants to study the various construction details, their appearance and performance, with the intention of making final and beneficial adjustments and amendments for application on later designs (8). Even though this structure was never completed, the experience gained helped the Consultanits to solve construction details. Request for additional IBRD loan As part of the first Loan Agreement, it was stipulated that the Government should arrange for additional facilities such as water supply and sewage plants for all schools in ol der to make them fully operational. Efforts were made in this field but it was soon evident that an enormous financial outlay would be required for additional services and facilities to cope with the increased enrolment in Project institutions. It was therefore decided to request loan assistance from the Bank as a supplement to Zambia I. Several other educational projects, under the Ministries of Education, Health and Rural Development and the University of Zambia, were also included in the new application. Negotiations in this respect took place in Washington in April, 1973, and resulted in a Zambia III loan of US$33 million. More than half of the estimated costs for Zambia III represented extensions to institutions included in Zambia I and this part of the loan is administered by the Project Unit. The loan comprises supplementary water supplies, sewage treatment facilities, staff housing, boarding facilities, classrooms and specialised teaching accommodations. Already fully involved in Zambia 1, Norconsult A/S were commissioned the additional work and a 'Contract for Professional Services for Additional Facilities (Zambia III)' (20) was signed on 19th April, 1974. 1.5. The present situation According to the initial time schedule the Project was to be completed by the end of 1974, but, due to financial reasons which hampered the implementation seriously, the Government took steps in 1972 to negotiate an extension of the construction period to 1st October, 1976. The Project is now further delayed and is expected to extend up to 30th June, 1978. Part of the extended period is due to additional work under Zambia III, which was commissioned as a result of the third IBRD Loan Agreement. The Government requested NORAD to cover part of the cost of Norconsult's fees in respect of the additional implementation period. NORAD will make known its response after the Government's evaluation of the Project has been undertaken. - 81 - Status at time of evaluation Only twelve schools had reached the stage of final completion in 1976, while construction work on nine others was virtually completed. By mid-1977 construction work is scheduled to be completed on all Project schools, including additional facilities under Zambia III, except for three groups of schools on which work will continue up to the end of this year. The supply of basic building materials, such as asbestos, timber, glass and fibreglass, is erratic, and is affecting progress on many schools. In terms of furniture and equipment, approximately 60 per cent has been supplied and installed in the institutions. The commissioning of kitchens in boarding schools is still an outstanding item. Most water supply schemes have been carried out but not totally finalised and handed over to the user, sometimes only because minor parts for bringing the plants into operation are missing. The welding is far below standard on the water tanks at several schools, and the Consultants, Norconsult A/S, have given this matter their close attention. The contractor responsible has accepted the criticism and is prepared to bring the welding up to standard. Another problem has been the inability to fill some of the large water tanks from the existing or improved sources of supply. The Consultants' solution to this matter was presented in a detailed report at the end of October, 1976. Extra costs amounting to K50,000 are necessary to overcome the problem at the nine Secondary schools involved. A delay in the delivery of furniture has been encountered due to ineffectiveness in the assembly procedure. After a slow-down in the production of furniture deliveries are expected to improve again with completion around November, 1977. Delays in construction work have caused a corresponding delay in equipment installation. Due to the substantial breakage during transport, handling and storing of furniture and equipment, the actual quantity finally delivered will fall short of the present requirements. Additional funds will therefore be needed to rectify the situation. I The Model at Munali Secondary School. Stil at a trial stage.  I> OD  -. 85 - 2. POLICIES AND DECISIONS 2.1. Educational aspects Policy objectives and plan targets At the initiation of the Project it appears that there was no well-defined educational policy other than providing more new places in the secondary sector. However, after consultation with UNESCO and the World Bank the major needs were identified and the following objectives were drawn up: To improve instruction in Primary schools through a programme of retraining primary school teachers already in service. To diversify the content of secondary education in accordance with the estimated manpower needs, through the introduction of Industrial Arts, Agriculture, Commerce and Home Economics in the secondary school curriculum at both junior and senior level, and to strengthen the teaching of Mathematics and Science. To expand the facilities for the training of secondary school teachers at such a rate that Secondary schools could be fully staffed by qualified local teachers by or before 1980. In furtherance of these overall objectives, detailed planning targets were set for the development of secondary education and teacher training. Thirty-five thousand seven hundred new secondary school places were to be provided by the construction of nine new schools and the alteration and extension of fifty-six existing schools with a view to better utilisation of existing facilities 'with little additional cost'. The total number of school places was later reduced by 12,000 to 23,700, as the proposed enrolment in TDP 'dual' boarding schools was considered by the Ministry of Education to be unacceptably high. New educational equipment was to be provided for 80 per cent of all secondary school enrolment. The teacher training sector of the Project comprised four items: (1) conversion of the previous Chalimbana Teacher Training College into a National In-Service Training College, with expanded enrolment; (2) Phase 2 expansion of the Secondary School Teachers' College at Kabwe (Nkrumah Teachers' College); (3) extensions to Kitwe Teacher Training College to permit enrolment to 500; (4) conversion of a former private Secondary school into a second Secondary school college (Copperbelt Teachers' College); plus furniture and equipment for all four institutions. Some constraints and suggested cbanges A series of constraints to fulfilling the educational aims was identified even before the loan agreement was signed. In particular, the lack of clearly expressed planning objectives and criteria, the under-staffing of the Ministry of Education, Planning Unit and the lack of broader expertise in pre-vocational education in the Inspectorate were hampering project planning. Other constraints likely to have severe impacts on the implementation were inexperienced headmasters, the lack of qualified teachers and of specialists in technical secondary education, and the shortcomings of the regional headquarters' staff. The inertia of the National Council for Education was also mentioned as a hindrance to educational planning and project implementation. To overcome the constraints, a number of steps to be taken were drawn up and incorporated into the loan agreement: Introduction of eight periods per week for practical subjects in the junior forms and ten periods per week for pre-vocational sections of the senior forms which should constitute nearly 55 to 60 per cent of the enrolment. Recruitment of teachers and training of regional staff were to be speeded up and steps be taken to develop the urgently needed programme for the training of Headmasters, jointly by the University of Zambia and the Ministry of Education. The Ministry of Education, Planning Unit, was to be strengthened and two new units, the Agricultural Unit and the Technical Unit, were to be developed within the Inspectorate. - 86 - Proposals were made to include representatives of the private sector in the National Council for Education. The influence of outside agencies One.could possibly argue that the influence of outside agencies in policy making and fixing of priorities has been rather substantial. There was a good degree of pressure from UNESCO and the World Bank regarding the expansion of existing TDP dual schools to more than 1,100 students, and the altering and reduction in the number of existing classrooms in old schools, so that they could fit in with the subject room system to be introduced in the new schools. The Bank also insisted on introducing double-decker beds in the dormitories and also influenced the curriculum decisions by pressing for introduction of a series of pre-vocational courses in the secondary schools. Contact and consultations The Consultants had a substantial influence on the educational policy and planning of the Secondary schools. Although there was consultation'with the Client at all stages, the consultations were mainly with individual subject inspectors. Individual recommendations were neither evaluated nor vetted by any professional co-ordinating body against well-defined educational objectives and criteria. Lack of consultation at lower levels and lack of regular monitoring of the progress of the alterations and additions by the educational wing of the Ministry resulted in extensive changes. Monitoring of the impact of changes and alterations on the effectiveness of teaching and learning was left solely to the Project Unit, which consisted mainly of technical and administrative personnel. Curriculum One of the major objectives of ZWBEP is diversification of the content of Secondary Education, in accordance with estimated manpower needs, through the introduction of Industrial Arts, Agriculture, Commerce and Home Economics in the secondary school curriculum. In furtherance of this objective it was stipulated that 43 per cent of the students should follow general arts and science courses and the remaining 57 per cent should take one or the other pre-vocational courses. Directives, to the effect that junior secondary classes should have a minimum of eight periods per week for practical subjects and senior classes ten periods per week for pre-vocational courses, were sent out to all schools. However, what constitutes a general art, science, or technology course was not fully defined. The structure of the secondary school system was remodelled but no new courses were introduced. A three-year course leading to the Junior Secondary School Leaving Certificate examination (JSSLC) and a two-year course leading to the Cambridge Overseas School Certificate Examination (COSC) were set up. Detailed syllabuses for various subjects in the junior forms were drawn up. Cambridge syllabuses are still followed in the senior forms. Appendix B lists the various subjects taught in the senior classes and the number of candidates for the 1976 COSC examinations. 2.2. Architectural aspects Design policy The Client did not specifically outline a philosophy on the architectural aspects. However, the Loan Application to IBRD (25) and the Working Papers (3) and (15) were worked out as a joint effort between the Client and the Bank and information relating to this aspect was included, although not explicitly stated. This lack of clearly stated policy left the Consultants free to investigate new possibilities and this might have contributed to the unconventional solutions adopted. The UNESCO Mission's report of 1966 (1) recommended that steps be taken by the Government, prior to project implementation, by making a 'Policy decision on the - 87 - redesigning of teaching and residential accommodation with a view to economising, with particular reference to the existing schedule of accommodation for secondary schools'. The World Bank's Appraisal Report of 1969 (2) contains some information on this aspect. Paragraph 5.20 states that 'the size of classrooms, laboratories and workshops has been reviewed and standards are austere' and that 'agreement was reached on utmost economy in calculating circulation spaces and layout of buildings'. Paragraph 5.21 states that 'site development costs have been estimated on the basis of austere standards'. Paragraph 5.28 states that 'to achieve economy through standardisation, one firm of architects would be in charge of dil Secondary schools, new and extensions'. A design policy with regard to layout of schools is indicated in the Consultants' 'Report on Preliminary Studies' (RPS) (8). The intention is to standardise the room units and certain components which go into these in order to comply with different site conditions and space requirements. Apart from this the Team is not aware of any document setting out the Consultants' objectives in this respect. It should, however, be mentioned that the Consultants proposed to introduce the 'open plan school', but this did not meet with the approval of the Ministry. Decisions on architecture Decisions on architectural aspects closely follow decisions on any other aspect, i.e. educational, technical, financial and managerial. An overall assessment and evaluation of these components was therefore deemed necessary to decide on the architectural aspects. The Report on Preliminary Studies (8) describes in detail the background information compiled for the purpose of planning and implementation, and provided a basis for such an overall assessment. The Consultants repeatedly stressed the main criteria for the decision on a construction system and the subsequent architecture as follows: Cost limitation (K25.9 million). Short construction period (four years, three months). Magnitude of project (nine new schools, fifty-six extensions/remodelling). Lack of skilled labour. The Planning Unit in the Ministry of Education had virtually no experience in evaluating proposals such as those made by the Consultants. Buildings Branch may have had fairly limited experience of such large-scale projects, although they had designed and supervised the major TDP secondary school programme. However, the Project Unit was the professional body responsible under the Loan Agreement for advising the Client. Since the Project Unit recommended the Consultants' proposals with minor reservations the Client found no reason to disagree. The Consultants presented the Room Unit System in a report dated 1st February, 1971 (13), and the Construction System in a report dated February, 1971 (9), both for the approval of the Client. Such approval was given from the Ministry of Education by the Planning Unit, on the recommendation of the Project Unit, on 16th February, 1971, with only a few amendments to be incorporated in the room layouts. Equipment lists for Technical Drawing, Metalwork and Woodwork were approved at the same time, together with site layouts for the first group of schools. As decisions thus were taken on room units, construction system and the first four site layouts, the physical appearance was determined for the whole Project. This included the principle of combining room units to suit the different space requirements and the site conditions, the compact layout to reduce the cost of site works and the principle of zoning to achieve functional layouts. 2.3 Technical aspects Building technology and construction methods The crucial decisions on the building technology to be adopted for the Secondary school project and the consequent framing of a constructional system based on a high degree of - 88 - industrialised building and prefabrication were taken at a very early stage of the planning period. The adoption of building technology is highly dependent on decisions relating to standardisation and modular design, as well as to construction methods and the use of building materials. As to the two first mentioned factors, decisions to develop a standardised design were taken in the very first planning documents. The Contract for Professional Services (CPS) (4) (Appendix A, paragraph C) makes reference to 'the design of a construction system based on standard units and elements' and the use and testing of such a system in the first major project item, 210 Hillcrest, if 'developed and applicable'. The report on Preliminary Studies (RPS) (8) and the Project Memorandum (5) both refer to preparation of a fully detailed construction system based on standardised room units and modular components as a necessary measure to cope with the indicated time schedule. The introduction of modular design based on standardised room units seems to have been fully accepted by the Client and has never been questioned as the right approach. The other factors directing the application of building technology, the design of the constructional system and the choice of building materials and components, were decided upon during the early phases of design. These vital decisions are, however, embodied in the general framework of planning and design and were not, as far as the Team has found out, pven any specific consideration. The background material presented in the RPS (8), intended to form the basis of the technology decisions, is highly inconsistent on this matter. While in several chapters reference is made to the necessity of preparing drawings and specifications allowing for alternative choice of materials and execution of works (see paragraphs 1.14, 7.01, 10.18 and 10.19), there is also ample reference to the aim of developing a construction system based on prefabrication and industrialised building techniques (see paragraphs 6.01, 6.03,-6.12 and 6.14). One may get the impression that the Consultants were somewhat biased in this matter and in fact had concluded, prior to the preparation of the of the RPS (8), that an industrialised building system had to be introduced. The CPS (4) and the RPS (8) call for a cost comparison between a solution based on conventional construction methods and a prefabricated/industrialised version. The proposed construction system and the recommendation to use a sandwich-type wall element is outlined in two reports, of November, 1970 (9), and February, 1971 (10), prepared by the Consultants. A direct cost comparison of various alternatives is not included in these reports and the arguments supporting the recommended solution are all in qualitative terms without a systematic technical/economic analysis. The report did, however, form the basis of the final adoption of the construction system as expressed in the Project Director's Note of 4th February, 1971 (11), giving a somewhat conditional go-ahead for the proposed construction system. A cost comparison as requested by the IBRD is given in a later report (Standard Items, April, 1971) (12). However, one gets the impression that the purpose of this report is more to support decisions already taken than really to discuss alternative (conventional) construction methods. Although the comparative cost estimates for the proposed design and a very conventional solution conclude that the prices differ only marginally, all the qualitative factors listed are the 'pro's' of the already chosen system. The economic comparison does not include an analysis of the foreign exchange implications of introducing the industrialised building techniques, probably because the country did not regard this as a serious problem in 1970/71. The maintenance aspect is very briefly discussed in the reports mentioned above. The loan agreement (6) states that it is the responsibility of the borrower to adequately maintain the buildings and equipment of the educational institutions and make all necessary renewals and repairs in accordance with 'sound technical and administrative practice'. Apart from this there is no clearly stated policy on maintenance and its organisation other than the implicit assumption that the construction methods and the selection of plant and equipment aim at keeping maintenance and replacement costs at a minimum. It is argued in the construction system report (9) that the proposed system and elements will reduce future maintenance without any further discussion of this important aspect. Preparation of a Maintenance Manual is, however, included under the Consultants' services. - 89 - The Consultants' views on the building technology and construction methods The following outline of the Consultants' views is based on the Consultants' reports and on interviews with their key personnel in Oslo and Lusaka. The Consultants stressed the following factors as main criteria for their approach to the Project: The magnitude of the Project, the cost limitation, the strict time limit and the lack of skilled labour and building materials in rural areas. Zambian industry and its production capacity was found to be well developed. The industry dealing with asbestos-cement, polyurethane and steel had developed techniques for production of building components such as wall and ceiling elements, roofing materials and structural steel. By 1970 there was in the country a lesser number of contractors than existed two to three years earlier and the lack of staff in managerial positions was found to be considerable. Leading local contractors were less interested in jobs outside the main centres, and skilled labour was hard to obtain in rural areas. Reduction of skilled on-site labour by introducing factory prefabrication seemed therefore desirable The building programme provided for a large number of units to be constructed to the same requirements. The Project thus offered the opportunity of an unconventional approach both with regard to planning and implementation. It was found beneficial to take steps towards some degree of modular co-ordination and prefabrication as part of industrialised building. Thus the Project offered an opportunity to introduce industrialised building techniques in the country and thereby give an impetus to develop these possibilities. Based on the existing industries it was found feasible to develop a method for mass-production of a certain variety of light-weight components to be brought to the site and erected in combination with conventional trades. The building system developed, based on standardised room units, resulted in far better layout plans for the variety of sites than the TDP-school system, based on block units and standardised layout plans. In conclusion, the Consultants found the untraditional methods for planning and construction to be the best way to cope with the main problems connected with the Projecc. In fact, they could see no other choice than a partly industrialised prefabrication system combined with conventional building methods. In the Consultants' opinion this is not a sophisticated building system based on western planning and building techniques, at least not to a higher degree than the education system to be practised in the new schools is sophisticated and westernised. M t ad 'Main street' at Chipata Day Secondary School. 2.4. Managerial aspects - 90 - Management policy This Project had no precedents in terms of management on the part of the Government. The only large project executed in this field was the twenty-six TDP-schools, wholly financed by Zambia. At the time of project preparation there was no tradition for brief-making and evaluation. Therefore no feedback from the TDP-schools was available in terms of project management. The st eer magnitude of the Project and the planned short implementation period called for a firm and strong management set-up able to cope with this task. On the part of the Client the management structure was defined by the World Bank, based on the Bank's experience of similar projects. On the part of the Consultants, the general organisation for the Project was set out in the 'Plan of Operation' which formed part of the 'Contract for Professional Services' Management decisions The UNESCO Mission Report (1) recommended 'strengthening of the Ministry of Education by the establishment of an educational planning division or unit headed by a full-time officer of senior rank' as a step to be taken by the Government for Project preparation. The World Bank in the Loan Agreement (6) gave a broad outline of the management structure. The Government was obliged to establish and maintain, within its Ministry of Education, a Project Unit. This Unit should have very comprehensive responsibilities requiring highly qualified people in all key positions. The Project Unit was to consist of a full-time Project Director, a Project Architect, a Purchasing Officer and an Accountant as well as such administrative and secretarial staff as would be required. The Project Unit should be responsible and have necessary powers for the execution of the Project, including: the selection, briefing, co-ordination and supervision of all the consultants; the selection of the Clerks of Works; the approval of the design of the educational institutions; the award of contracts for procuring furniture and equipment (including books) arranged and phased in accordance with sound procurement practices and to permit bulk purchases whenever possible; the preparation of detailed price lists of furniture and instructional equipment; the supervision of tender documents, analysis and recommendation of tenders received; the co-ordination of the Project with the Ministry responsible for public works; the regular inspection of all construction works, and the keeping of records and preparation of regular reports to the World Bank. The Government was also obliged to employ a qualified and experienced firm of consultants mutually acceptable to both parties, qualified and experienced Clerks of Works that would be responsible to such firms and, finally, qualified and experienced contractors Project Unit procedures Once the general management structure was outlined and the Project Unit was established the Unit itself worked out in detail the routines and procedures for the effective running of the Project. During the first year, 1970, it seems that questions relating to this matter were sorted out, although the Ministry in the initial phases was disappointed by the lack of liaison between the Project Unit and itself. Apart from job descriptions as indicated in the Loan Agreement, job descriptions for Project Architect, Office Manager, Finance Controller and Purchasing Officer, were elaborated. In addition, the Project Unit issued a number of Procedure Memoranda as guides to Project employees in carrying out their responsibilities It should be noted that, contrary to normal practice, the Supervisory Engineers, though employed and administered by the Project Director, should in professional matters work under the guidance of the Consultants - 91 - This procedure was in compliance with World Bank requirements embodied in the Loan Agreement. To secure, channel and formalise all information relevant to the Project, numerous types of meetings were scheduled. At regular intervals, informal contact meetings, programming meetings, project meetings and construction meetings took place, normally chaired by the Project Unit. Progress and planning meetings were held monthly. Several ministries were participating in addition to the Consultants: Finance, Power, Transport and Works, Education and the Commission for Technical Education and Vocational Training. In addition, representatives of the IBRD were invited when present in Lusaka This meeting too was organised, chaired and minuted by the Project Unit. Management during the construction pcriod The Project Unit was to be responsible for regular inspection of all construction works, and to keep records and prepare regular reports to the Bank, i.e. Project Unit staff were expected to pay regular visits to the sites. In addition, Supervisory Engineers or Clerks of Works were employed by the Government, as required in the Loan Agreement, to supervise the day-to-day work on the sites. Although stationed permanently at one particular site, they were responsible for several sites, involving c\tensive tra% elling to cover all of them The main duty of the Supen isory Engineers was to make sure that works were oarried out according to the contract, acting as a civil servant under the administration of the Project Unit. Moreover, his duties included quahty control through regular inspection ot the works, and workmanship and quality control of materials. including necessar\ testing And, probabi most important, his duties included control of cconomy and pavmcnts Measurements of quantities weie to be done jointly by the Supervisory Engineer and the contractor and the degree of completion as a percentage of the total work item reported to the Consultants. Monthly interim payments to the contractor should then be certified by the Supervisory Engineer according to the above measuremcnt As sites were scattered all over the country, it was agreed that radio communication between the Project Unit and the Supervisory Engineers was necessar> to speed up construction and to ease communication with distant sites in rural areas Site meetings should generally be at 4-6-week intervals and attended by representatives of the contractor, the Supervisory Engineer and the Consultants' Contract Administrator who chaired the meeting For the purpose of informing the Consultants of progress and problems on site, monthly reports were submitted to them and, for the same reasons, quarterly Supervisory Engineers' Meetings were held to inform the Project Unit and to discuss common problems The Finance Controller was responsible for controlling and supervising all matters regarding accounts and salaries. An Economic Progress Report was to be compiled as an Appendix to the Project Director's quarterly report, relating cost estimates to actual expenditure. Organisation of purchasing and warehousing The Purchasing Officer was to be responsible for controlling and administering the purchase of permanent materials, equipment and furniture, including furniture purchased directly bN the Client. He was also responsible for the storing and assembly of furniture and the procedure for dispatching stores to the various schools. Tenders for supply of furniture and equipment were invited internationally according to the Bank's requirements. Furniture drawings and specifications produced by the Consultants were intended to indicate, in principle only, the construction and choice of materials to allow for the individual manufacturer's method of fabrication. The first contracts were awarded in 1971 and items were supposed to be delivered successively on a phased basis, according to progress on the sites Thus, a relatively small warehouse was built to cater for the more delicate and sophisticated goods and for temporary storage. - 92 - The furniture contract was awarded to an Israeli company, Kobim Industries Ltd, and items were delivered in a 'knocked-down' condition for assembly in Zambia by local firms. The Project Unit, however, recommended that assembly should be done by the supplier, but this proposal was turned down by the Central Supply and Tender Board. The Project Unit was solely responsible for the approval of the prototype samples of all the furniture items, without consultation with the Consultants who objected strongly to the standard and quality presented, the reason being an essential deviation from the design and specifications set forth. Contracts for supply of equipment were predominantly awarded to foreign%'ompanies, in most cases with no representatives in Zambia. Lists of equipment were compiled by the Ministry of Education. The Consultants were not involved in this exercise, except in the selection of cooking equipment which was done on their recommendation. 2.5. Financial aspects The impact on the Zambian economy At the time when the World Bank loan was negotiated and the Loan Agreement was established the Zambian economy had been stable, benefiting from high copper prices and a favourable foreign exchange position. This prosperous outlook, combined with comparatively low external debt, led the Bank to the conclusion that 'Zambia's basic economic si rength and long-range growth potential justifies her borrowing abroad on conventional terms to help finance important development projects' (2). The appraisal report (2) concludes that the financial implications of the Project in terms of capital and recurrent budget expenditure will not constitute a particularly heavy burden and does not appear 'out of line with expected increases in other sectors of Government expenditure'. The Bank estimated that the direct cost effect of the Project on the 1974 recurrent budget (at the then anticipated completion of the Project) would constitute approximately 10 per cent of total recurrent expenditure on education. Project estimates The estimated total costs were initially stipulated at K25 million, composed as follows: K million K million Secondary schools: New schools . . . . . . . 5.7 Extensions . . . . . . . . 15.3 23.0 Teacher Training (extensions) . . . . . 1.6 NORTEC (extensions) . . . . . . 1.3 Total . . K25.9 The loan was fixed at the amount needed to cover the foreign exchange component of the project estimated at 48 per cent of total costs, i.e. K12.4 million (US$17.4 million) The Norwegian Government, through NORAD, has undertaken to pay 70 per cent of the Consultants' fees (Nkr. 15.3 million) and to cover all salaries for the NORAD recruited Project Unit staff and the Supervisory Engineers. During the early phase of planning it was made clear that the cost estimates of the working papers were too low to meet the basic educational and service requirements in the RPS (8) the Consultants estimated an increase in construction costs of approximately K4 million and stressed the necessity of cost reducing measures, like. duty-free import of materials, centralised purchase and stockpiling of materials for the Project, utilisation of local materials to the extent feasible; and grouping of projects into larger (and more profitable) contracts Except for the last point the proposed measures were not implemented. Exemption of customs duty on building materials would have had no effect on the Government expenditure on the Project but only resulted in a transfer of costs. - 93 - Centralised purchase and stockpiling were obviously considered too complicated to organise and would also have introduced a unique situation for one particular, even though significant, part of the Government construction programme. A maximum utilisation of local materials was partly impaired by the adoption of the comparatively sophisticated building technology and industrialised construction methods as discussed in paragraph 2.3. The grouping of projects into contract 'packets' has been successfully implemented and did probably have a substantial cost-reducing effect. Due to a general slump of the economy and the difficulties thus encountered in meeting the construction schedule, the closing date of the loan was re-negotiated in 1972 and extended up to the end of 1976. By mid-1972 the Project Unit anticipated a cost overrun of K2.8 million for the original worksheet construction programme only. It was also clear that the provision of additional boarding and service facilities, infrastructure and staff housing, originally intended to be met from Government funds, could not be made and that this new situation would therefore jeopardise the whole Project. Substantial omissions and errors in the original worksheets had also resulted in a call for extra funds to secure implementation of the programme. The financing of additional facilities, water supply and staff housing for the project was negotiated as part of a new loan application to the World Bank. The Loan Agreement for the Third Education Project, totalling to US$33 million (K21.3 million), included a provision of approximately K 11.4 million to enable the Secondary schools and TTCs 'to be fully operational, including supplementary water supplies, sewage treatment facilities, boarding accommodation, staff housing, classrooms and specialised teaching accommodation' (16). The Norwegian Government, through NORAD, has undertaken the responsibility for the repayment of one-third of the loan limited upwards to US$11 million. Appendix C gives a detailed breakdown of the estimated costs based on the worksheet allocations. The anticipated total costs as per mid-1973 are summarised in Table 2.5(a) - Table 2.5(a). Cost estimates as per mid-1973 (K million) Zambia I Zambia III Zambia I + III Total Loan Total Loan Total Loan 1. Secondary Schools . . 23.0 11.0 12.9 10.6 35.9 21.6 2. Teacher Training . . . 1.6 0.8 1.0 0.8 2.6 1.6 Sub-Total (1+2) . . . 24.6 11.8 13.9 11.4 38.5 23.2 3. NORTEC . . . . 1.3 0.6 - - 1.3 0.6 Total 25.9 12.4 13.9 11.4 39.8 23.8 Source: IBRD Worksheets (3), (15). While the foreign exchange component for the first loan was estimated at an average of 48 per cent, it had risen to 63 per cent for the third loan. The estimated foreign exchange component of the various categories of expenditure were as shown in Table 2.5(b) - - 94 - Table 2.5(b). Estimated foreign exchange components Foreign exchange components Zambia I Zambia I// Furniture . . .92 Equipment . .92 Construction works Site development 3 5 Professional services. 40 60 Average 48% 63% Source. IBRD Working papers (3), (15). The increased import component of the construction works is noticeable and could probably to some extent be related to the building technology adopted for the Project and its high content of imported building materials. 2.6. The role o' the Ministry of Education and the Ministry of Power, Transport and Works Ministry of Education (Planning Unit and the Inspectorate) At the time of the UNESCO Mission Report (1) and the preparation of the World Bank's Appraisal Report (2) the Ministry of Education assisted in providing information an all fields of education The formal loan application to the World Bank (25) included reports on each school giving details as to enrolment, streams, options and staff requirements as well as schedules of accommodation, capital and recurrent expenditure, etc These reports were compiled by the Planning Unit which put a lot of effort into their making. After the Consultants had been appointed it became evident that the information contained in the Working Papers (3) was insufficient as a base for planning. A Client's Brief defining educational goals, building needs, facilities and functional requirements, relationship between spaces, flow of traffic, etc., was missing. This had to be worked out in collaboration with the Client, in this case the Planning Unit, which was collecting, co-ordinating and assembling all information supplied for this purpose. Throughout the whole planning and implementation period, the formal channel of communication between the Project Unit and the Ministry of Education Headquarters was through the Assistant Secretary (Planning), in charge of the Planning Unit. Questions relating to the Loan Agreement (6) and its interpretation were dealt with by the Planning Unit. This included, inter alia, policy decisions on enrolment, omissions from the work sheets, shortages of staff houses, room usage and priorities of school completion. In matters dealing with selection of students and curriculum changes, etc., the Unit was not directly responsible but served as a channel to the appropriate decision-making authority in the Ministry. The Planning Unit would also approve layouts, designs and drawings after prior consultation with the Inspectorate, which was the decisive body on space requirements for all specialist rooms and equipment in all teaching units, as well as library and textbooks to the schools. Co-ordination and co-operation with other ministries was necessary in order to assist in the smooth running of the Project. The Ministry of Education, through the Planning Unit, exercised its authority to help resolve problems relating to, amongst others, work permits, site selection, shortage of building materials and import licenses. And, last but not least, it was the responsibility of the Planning Unit to submit and defend estimates on capital expenditure as received from the Project Unit. Ministry of Power, Transport and Works (Buildings Branch) Buildings Branch normally perform the consultancy services, design and management on the majority of the educational projects for the Ministry of Education. - 95 - Chronic staff shortages and the Bank's requirements as regards the setting up of a Project Unit were the main reasons for limiting their involvement to the design of the four Teacher Training Colleges only. In the initial stage, Buildings Branch was involved in the pre-planning of water supplies to the Secondary schools as wel as providing advice on generating sets Representatives of Buildings Branch were participating in the monthly Progress and Planning Meetings. In addition, the Project Unit requested site plans for the fifty-six existing Secondary schools, showing service routes and drain runs to enable work to be carried out by the Consultants As mentioned above, Buildings Branch was responsible for the design, the working drawings, the preparation of Bills of Quantities and site supervision for the extensions to the four existing Teacher Training Colleges. Due to under-staffing in the relevant sections, Buildings Branch employed private consultants for the engineering services and co-ordinated their work and progress with the Project Unit. 2.7. Information available on Zambian conditions Architectural and structural trends The general conditions of the architectural and structural fields in Zambia have not altered fundamentally since the early 1950s; there have, however, been considerable developments in construction technique, with the introduction of more advanced plant and equipment. The main differences encountered by the Zambia World Bank Education Project, and Client, have been in the field of planning and administration On site, the use of in situ structural concrete, structural roof steel and greater areas of glass have taken the place of the more usual rendered block walls, timber roof trusses and small timber windows, thereby providing buildings of very different external appearance. The construction industry The Zambian construction industry is predominantly under private expatriate ownership and control and is dominated by a core of some thirty to thirty-five larger building construction and civil engineering companies which account for approximately 50 per cent of the formal sector construction output. In addition to these companies, which are permanently based in the country, there are also other foreign companies temporarily established to undertake single contracts normally on a large scale Zambia has, since the late 1960s, faced a decline in the number of active construction firms. The RPS (8) observes this trend and expresses concern about the implications of this for the project execution. However, due to a general economic recession and subsequent decline in Government investment, the construction industry had in 1971-72 idle capacity and was therefore in a situation of strong competition The building construction and civil engineering component of the first loan was, in 1969, estimated at approximately K18 million, to be distributed fairly equally over three years, 1971-73. Compared to the 1969 annual output of the private construction industry of K120 million the programme counted for a small proportion of the total workload of the construction sector After extending the Project by including additional services and facilities under the third loan the construction component was estimated at approximately K31 million over three years, but still constituted a relatively small share of the total capacity (output) of domestic contractors. (In 1973 the total annual construction output was approximately K250 million, according to National Accounts data from CSO. Of this, an estimated K170 million represents new construction undertaken by private contractors, half of which was construction ot buildings.) No Government construction policies were explicitly expressed at the planning stage except for the regulation of the loan agreement that civil works be grouped to form economic 'bid packages' and phased to ensure a continuous flow of work in each region. All contracts worth more than US$140,000 (K100,000) would be subject to international competitive bidding in accordance with IBRD guidelines The appraisal report (2), however, states that 'it is unlikely that overseas contractors would wish to be employed on the - 96 - project'. The whole Project was, therefore, to be based on the capacity, capability and skill of domestic contractors and this called for a close assessment of the local construction industry. Assessment of construction capacity The plan documents deal very briefly with the question of construction capacity. Chapter 12 of the RPS (8) mainly deals with the registration and pre-qualificpton of contractors and the assessment of construction capacity is rather superficial. Although stating that construction activities seem to be declining, no attempt was made to numerically assess the capacity of the construction industry and the technical capability and skill of the local contractors. The appraisal report (2) states equally briefly that 'the capacity of the Zambian building industry is sufficient to handle the proposed volume of construction within the time period' (five years, including a fifteen-month preparation and planning period and a twelve- month defects and liability period). The findings of the RPS (8) in this matter must be regarded somewhat short of the requirements of the Contract for Professional Services (4), according to which the consultants undertake to carry out a survey of 'local construction methods and pi ocedures and the local building industry's structure and capacity'. This insufficient knowledge of the structure and capability of the local construction industry would later prove to be seriously affecting the Project and cause great problems and conflicts relating to execution of the construction programme. Pre-qualification Twenty-nine contractors, of which eight were foreign, finally pre-qualified for the project Some of the more experienced Zambian firms did not show interest in the Project for reasons that will be discussed under paragraph 3.6. The tendering did not attract much interest from abroad. Only two foreign contractors did actually tender, one of them successfully (Khan Construction, Kampala, Uganda). The bulk of the construction work was, therefore, subject to competition from local contractors, many of them completely unacquainted with industrialised building techniques and with a very rudimentary financial and technical management machinery. Supply of materials The RPS (8) discusses in some detail the supply situation for basic construction materials The report concludes that the supply situation is satisfactory for cement, steel (conventional sections), asbestos-materials and softwoods. The report also discusses the quality of local bricks and holds that the use of bricks should be subject to prior investigation in each individual case due to the local vanations in quality. The availability of sand and concrete aggregates in various locations is distussed in some detail and it is concluded that sand and aggregates will generally be available in most parts of the country except for Western Pro\ ince At the time of the project planning and design, a substantial part of the imported building materials and components were supplied from Rhodesia, South Africa and via Beira. According to the 1969 trade statistics (23), virtually all steel products (90 per cent) and large proportions of glass (80 per cent), sanitary wares (60 per ccnt), pipes and fittings (35 per cent) were supplied from South Africa. Sawn timber and boards were also to a significant extent imported from the south (20-25 per cent) Materials and Lomponents purchased from other countries were to some extent also imported through the southern route where a well-developed transport system and handling facilities existed The other important import routes were the Benguela Railway via Lobito anu b\ road via Dar es Salaam. In the RPS the Consultants refer to the supply situation as difficult, especiallN regarding the increasing delays in delivery of goods As a remed- to rectify this situation intiodu.tion of a system of stockpiling of materials and equipment normally causing delays in execution of construction works was proposed - 97 - The question of establishing a centralised purchasing and stockpiling agency as part of the Client's organisation (Project Unit) seems to have been a matter of repeated discussions, but was not implemented as the Project Unit did not want to remove the responsibility of materials supply from the contractors. The closure of the Rhodesian border on 9th January, 1973, and the ban on importation of South African goods, changed the supply situation drastically and had a heavy impact on planning and execution of construction projects. A new situation was suddenly created to which the Consultants and the Client had to adjust. Labour and skill The RPS (8) does not discuss the availability and skill of local labour and tradesmen but mentions briefly the difficulties of the contractors in recruiting qualified and experienced professional manpower. The Construction System Report (9), however, states that one of the main planning criteria should be to develop a design utilising a high proportion of unskilled labour reducing the number of trades to a minimum, assuming qualified staff at supervisory level. This criterion obviously implicitly assumes a general lack of skilled or semi-skilled manpower (e.g. bricklayers, plasterers), an opinion that is normally not shared by contractors and local consultants. Corner detail at Chizongwc Secondary School. High degree of detailing. - 98 - 2.8. The role of the Hillcrest pilot scheme Planning and design Among the fifty-six Secondary schools that required extension and remodelling, Hillcrest Secondary Technical School (formerly Livingstone Secondary School) had a specific position, the reason being an educational need for having the school fully operational as soon as possible This requirement was stressed by the Ministry of Education at a preparatory stage of the Project The 'C. ntract for Professional Services' states that tender documents should be prepared within the General Planning period with the aim of having the first units ready for occupation as early as possible in the school year starting January, 1971, whereas the RPS (8) correctly sets out a different view of this matter in accordance with the Client's concern to have the whole construction work completed and the school in full operation by January, 1972 The changed policy reinforced the workload on the Consultants who gave this project the highest priority. The design of the Hillcrest extension had to be done while the Consultants were still engaged in the General Planning studies and the preparation of a 'Standard Room Unit' construction system. Being only in the early phase of the system design and without any approval of this approach, the full benefits of this parallel development could not be obtained. Although the Consultants recommended an industrialised building system as a general solution to the full Project, they felt that the only practicable way of implementing the Hillcrest project was to use conventional building methods and regard the project as a 'one-off' job 4 0 -_ .. Internal courtyard at Hillcrest The design applied is based on conventional use of brick walls and corrugated asbestos roof sheets laid on steel beams and supported by columns with a modular rhythm of 2.75 m in the facade. Purpose-made steel window frames for fixed glass and louvres have been used and the balance between glass and wall areas is good. Most new buildings are relatively small and have well-defined units linked together with paved areas and creating a village-like environment, having differently shaped courtyards in between. Execution of the project The construction work comprised the building of classroom units, dormitories, toilet blocks and staff houses, apart from remodelling work within the existing building volumes. Construction work on new buildings formed, with its 5,810m', the largest single extension work on one school and the work was split in two phases, Stages I and 11. The contract for Stage I was awarded to Khan Construction (the only tenderer), who started building in July, 1971, with completion by September, 1972. Stage II was awarded to Prago Builders (lowest of six tenderers), who began construction in August, 1972, and completed by October, 1973. The total cost of the project, including site works and remodelling, was K517,000. The average square-metre cost for the room units (excluding toilets) was K66.90 (in 1971 prices), which is the lowest unit cost obtained for any tender group in the ZWBEP (see cost analysis in Section 3.8). The construction work was straightforward and both contractors had only a few months' delay in relation to the planned time schedule. - 99 - _V-i Simple use of materials with a good Walkway in the dormitory area. architectural effect. (Both lluvtrations from Hillcrest Secondary 7 echncal School Feedback on the design process According to the Consultants, 'the planning and 'construction of certain project items for the first year's group of schools, in particular the Hillcrest Secondary Technical School, will offer an opportunity to study the suitable extent of standardisation and prefabrication' (4). Thus, the Hillcrest project has from the very beginning been referred to as a pilot scheme, from which information and experience gained would constitute feedback of major importance for the whole project planning and design. However, the Consultants' possibilities in making an evaluation of construction system and materials applied in the Hillcrest project were, unfortunately, forfeited. No doubt the time pressure under which the Consultants were operating is part of the explanation, as a real assessment of the project seems to have been dropped. An impression is left that the Consultants never regarded the Hillcrest Project as anything more than the very first school of the Project's sixty-five (first=pilot), and that the project would not be subject to specific evaluation that would have any conclusive influence on the Standard Room Unit' design and the construction methods adopted. Ablution block in dormitory area at Hillcrest. - 100 - Though not teasible to incorporate obvious advantages from the Hillcrest project in the first stage of ZWBEP, it also appears to have been out of the question to employ more conventional methods in the long run, based on experience from the 'Pilot Project' which, overall, has proved very satisfactory. Good detailing and workmanship. Interior view of Ablution 7 6 Ji Block at Hillcrest. Classroom blocks in - the teaching area at Hilcrest. 2.9. Documentation of the Project The Secondary school component It was at a very early stage decided to adopt a unit price contract with one single contractor responsible for the complete execution of the Project (group). This is the normal type of contract used in Zambia. Because of the international tendering procedures decisions were taken to adopt a documentation in accordance with international practice. Guidelines prepared by Federation International des Ingenieurs Conseils (FIDIC) and Federation International du Batement et des Travaux Public (FIBTP) were therefore applied. These guidelines were not commonly known among Zambian contractors and did not fully comply with the standard documentation used by the Ministry of Power, Transport and Works, Works Department. In particular, the specification that the Bill of Quantities was to take precedence over drawings did not comply with normal conditions. The confusion created by this new practice was, however, greatly magnified by the completely unfamiliar layout and presentation of drawings and the Bill of Quantities by the adoption of the CBC-system. The decision to use the 'Co-ordinated Building Communication' (CBC)-system was taken in the initial planning stages. The RPS (8) states that the Consultants had 'finally - 101 - settled for the CBC-system.. . to be best suited to the Project's requirement' after having examined different methods and approaches involving data processing. CBC is an integrated management and documentation system for building and civil engineering works based on a high degree of electronic data processing. The system is of Danish origin. The RPS (8) lists numerous advantages in applying the system, even though the Consultants had no previous experience in practical application of it. The Client, as represented by the Project Unit, does not seem to have had any particular knowledge of the CBC-system and, therefore, did not express serious J",ubts on its use. 'The recommendation to use the CBC system may be a right one but it is extremely difficult to judge without knowing the system in detail. It seems, however, that the system provides the facilities needed for giving necessary information' (11). The Lusaka-based Norconsult staff were reinforced and trained by a Danish CBC expert who joined the firm in 1970. He also briefed the computer personnel of the Data Processing Unit, Ministry of Finance, which was to provide the data processing facilities needed to run the system. The CBC-system implies that all operations and construction components are coded and appear in the Bill of Quantities and on the drawings as a codified item (e.g. (21): F G2.1234 = external wall made of clay bricks). The system also implies seperate listed items for provision of labour and materials, an approach which makes it necessary for all bidders to split their normal rates accordingly and to ensure that the material and labour components are covered on all items. The pricing was, therefore, highly complicated by the splitting of traditional 'all-in-one' rates into smaller components. The grouping of tenders (up to nine various locations in one group) resulted in a very comprehensive Bill of Quantity in which the various locations are included under each item and identified only with a job number. This practice proved to have a heavy bearing on the contractor's pricing. The RPS (8) stressed the importance of informing the contractors of the CBC-system and gave guidance as to how to read a Bill of Quantity prepared by EDP and with all items codified. Introduction courses were arranged by the Consultant for all contractors involved and there was also prepared an introductory part to the Bill of Quantity, giving a brief orientation of the structure of the system and the construction of the codification. The introduction is, however, prepared in a highly sophisticated technical/illustrative language and even persons with a solid professional background would need a lot of time to understand the system. The contract documents did not initially include a price fluctuation clause although this was recommended by the Consultants. Facing a rapid and unprecedented cost increase on building materials in 1974/75, it was proposed by the Project Unit that such a clause be included for the contracts still under execution. The Central Supply and Tender Board did not agree to an automatic inclusion of a price fluctuation clause and only approved limited cost compensations for some of the contracts. The problem still remains unsolved for a number of contracts. Technical Training Colleges and Hillcrest Secondary Technical School Tender documents for the Teacher Training Colleges were prepared by Buildings Branch with local consultants commissioned for quantity surveying and engineering services. All documents were prepared on a conventional basis for international tendering as required by the World Bank. The documentation of the Hillcrest Pilot Project was also prepared on a conventional basis for international tendering.  cn CD  - 105 - 3. EVALUATION 3.1. Educational aspect The concept of the Basic Subject Room system The Basic Subject Room system followed is educationally sound. Under this concept the same rooms are used as subject rooms during instruction hours and as basic rooms for registration and self studies. To conceive workshops, homecraft rooms and commerce rooms as specialist rooms, outside the Basic Subject Room system, is realistic. But it is a pity that science laboratories are part of the Basic Subject Room system. Any attempt to use science laboratories more than 70 to 75 per cent of the teaching hours will adversely affect science teaching. Theoretically the subject room system should work well in an ideal situation, a situatiou in which all pupils in a class take the same subjects, and for all subjects there is an adequate number of specialised teachers and the timetable is carefully drawn up. Indeed, planners often plan for the ideal and argue that it is wrong to plan so as to accommodate arid thereby encourage weaknesses. But it is a reality that weaknesses exist and will continue to exist for a long time to come. The concept of the Basic Subject Room system is least understood by many of our Heads. They still follow the old system. As a result, History, Geography, English, etc., are taught in chemistry or physics laboratories. In boarding schools, laboratories are bound to be used as study rooms without teacheis in supervision. This will invariably lead to theft and damage. Furthermore, it will not be possible for teachers to set class experiments in advance. The general complaint that time v. lost between classes could be solved by allowing five minutes between periods for pupils' movement. This means an additional forty minutes to be incorporated into the daily timetable. One of the many advantages of the Subject Room Unit system is a saving in the number of classrooms. Indeed, the introduction of the system in new schools is a great money savei But one fails to understand why, for the sake of the system, the number of rooms in existing schools has been reduced at great expense. The cost of remodelling existing school buildings is K4.2 million, which is 27 per cent of the total building costs for all Secondary school extensions. The Team feels that the cost of remodelling the existing schools has been high compared to the expected educational benefits. A more modest and phased programme of alterations, e.g carried out by PWD, according to needs established through using the various rooms, would probably have been a more economical solution. Pupil intake It was originally plannea that many of the existing boarding schools should be expanded so as to accommodate over 1,100 pupils. This was not a sound policy educationally, particularly in view of the administrative, transport and water problems these schools are facing. Credit should be given to the Planning Unit for having realised the the problem in time and limited the intake to 920. Even this figure is a bit too high for boarding schools. Research findings elsewhere indicate that the optimum number for a day secondary school is 600 to 900, depending on the administrative capability and the facilities provided Assessment of teaching facdities The short supply of equipment, delay in completing the construction work and other technical aspects, were uppermost in the minds of the teachers and Headmasters. ' [he furniture is flimsy, the windows are breaking, the double-decker beds are falling apart, the lockers are a waste, the gas-supply systems are not connected, etc., etc.', were the typical comments It appears that most of them have not given any thought to the educational aspects. Most of the Heads seem to be totally ignorant of the thinking behind the alterations and the additions. It appears that policy matters regarding the diversitication of curriculum, the functional aspects of the various room units and the course programming are not tullk understood by the Heads It is a pity that the functional description of the ditfrenit room units were not distributed to the ileads. - 10~6 - Classroom units The normal classroom space is quite adequate although slightly less than indicated in the work sheets. It provides sufficient movement space for the teacher and the pupils and, at the same time, the rooms are small enough to maintain a good degree of cohesion between the teacher and the pupils. However, in some cases the chalk-board is fixed at the wrong end and pupils are to be seated in such a way that light falls from over the right shoulder rather than froni the left. Where large :oom units are provided, as in the case of the social study unit, the functional aspect of the design is not clear to most of the teachers and Heads. As a result, pupils' desks are arranged in three rows across the entire length of the room, making it difficult to have effective teacher-pupil interaction. No pinboards are provided and the construction of the walls is such that improvised pinboards cannot be easily fixed without damaging the walls and mounting of pinboards at a later stage requires special tools, which might be a problem if done by the user. In almost all cases, overhead projection stand, map rails and display boards are not provided. Classroom units at Munali Secondary School. The major drawbacks of the new classroom units are. The ventilator gap running all around the top of the outside walls, though effective as a ventilator, has serious drawbacks as it sucks dust, leaves, sand and other debris from outside when there is strong wind The architectural design is such that the chalk-boards cannot be fixed high enough for everybody to see the bottom part of the boards In fact, the chalk-boacds are relatively small, which makes it worse The use of fibreglass and over 50 per cent glass panes has made it difficult to black-out rooms for projection of slides and films. The thin partition between classrooms is not sound-proof One could hear what is going on in adjacent classrooms. The situation is worse when teachers write on the chalk-board. The knocks and taps are clearly heard in the adjacent room However, strangely enough, pupils and teachers interviewed in many schools seem to have adjusted themselves well to the situation. They are least bothered about the noise coming through But all agree that the sound from adjacent rooms could be disturbing enough when radio or TV programmes are on The room units are very vulnerable to theft Storage facilities are not at all adequate in general for any ot the schools Laboratory units The design of the new laboratories is good The preparation/store rooms are spacious. The various drawbacks pointed out with regard to the classrooms are applicable in the case ot laboratories also The purpose of the half-laboratory is not clear Half-laboratories are not rclci ant to the present curriculum arrangement Small laboratories for twenty to twentN -tour pupils are generally provided for 'A'-level classes At present these half-laboratories are used for - 1'7 - science teaching with thirty-five to forty pupils squeezed in. Splitting classes into two groups for science lessons is not possible, due to the shortage of teachers and laboratories. These half-laboratories can easily be used as project rooms or laboratory workshops. This means a reduction in the number of laboratories. The room utilisation rate of laboratories is reckoned as 70 to 75 per cent. It is not possible to remain within this due to the fact that laboratories are meant to be used as basic room units and half-laboratories cannot be used for practical work for thirty to forty pupils. This situation is bound to affect effective Science teaching. The concrete work benches installed in the laboratories are not suitable for all practical work as they are not acid-proof. It is a pity that in some schools the permanent wooden work benches are replaced with what the pupils call 'mortuary benches'. It is surprising that a gas supply is provided only in the chemistry laboratories. Heating facilities are essential in all laboratories, especially in general science laboratories. Even though fume cupboards are included in the laboratory design they are not provided in any of the chemistry laboratories. On the whole the science teaching facilities provided under the ZWBEP are satisfactory. With careful planning and good timetabling these facilities can be used for strengthening science teaching. Workshop units ut Chipata Day Secondary School. Sensitive adaptation of buildings to texisting trees. Other specialist room units The design and layout of other specialist rooms such as workshops, commerce rooms and homecraft rooms, are satisfactory. Only workshop areas are considered slightly too small in view of the equipment installed. Machines and equipment seem to be too closely spaced for easy operation. It should be noted that the teaching of Technical Drawing and Art and Craft in the same room unit will pose a lot of insoluble practical difficulties. Administration unit Floor areas are sufficient. The sound insulation between rooms is bad, and was the reason for complaints from a number of Heads and staff. No toilets are attached directly to this unit, but to the staff room unit instead. This has in some cases led to bad accessibility to toilets for staff in the administration unit Assembly/Dining Hall The new halls are large and spacious The design and the layout of the dressing-rooms attached to the stage are poor. These rooms are too small and are without exit doors. To enter the store or dressing-room one has to cross the stage, which is not acceptable. The stages are too low and as such they fail to serve their purpose. - 108 - Further, the stages are not provided with the necessary fittings for fixing cuitain rails and curtains are not provided. It is practically impossible to black-out the halls for film projection during daytime, due to fibreglass enclosing the gable ends. Here is a clear case where educational values are compromised to suit the architectural design. Acoustics were bad as experienced by the Team and this was also confirmed by Heads and teachers. Assembly Hall at Ndeke Secondary School Kitcben Apart from Hillcrest Secondary I echnical School, none of the kitchens visited in boarding schools was completed. The following observations were made. The size is fair. The working areas seemed to be adequate. The concrete stands for sinks are not good as they are not likely to be durable and they do not look well at all. The cooking equipment is very sophisticated and has a capacity far beyond what is needed in educational institutions at present. Most of the equipment which had been in operation was out of order, although it had only been in use for a short period. It turned out to be very difficult to maintain the equipment since both skill and spare parts are short. Even Mechanical Services Branch fail to repair broken-down equipment. , New kiechen at Kambulc Secondary School. No training or instructions have been given to the cooks, apart from pamphlets. Unless instruction and demonstration is given by the suppliers on how to get the best performance from the expensive equipment, a lot of money will be wasted on repair of damages resulting from misuse. The size of store rooms is too small and the number inadequate, because cleaning materials and equipment, as well as other boarding requisites, should be stored separately from foodstuffs. There is also no allowance for bulk storage, which is very essential in boarding institutions, especially those in rural areas which have to buy almost all their supplies in bulk. - 109 - Standard cooking pots introduced with the ZWBEP. Tuckshop This unit is considered too big and spacious. The intention has been to serve light meals in day schools. In boarding schools with kitchen facilities one wonders why this unit was included and not a smaller and simpler room. Dormitories If the dormitory unit is furnished as indicated on layouts it would provide four compartments of ten students in each. Although not roomy enough, this layout is considered to be working well in general. At some schools, however, cupboards were placed in such a way that free movement was possible throughout the dormitory area which is contrary to the intended layout. As a result a less satisfactory unit is achieved. Boys' dormitory at Nyimba Secondary school. The case rooms are too small and, besides, there are no shelves, which make these rooms useless. The Common Room is also too small and serves primarily as a traffic area. The extensive use of louvre windows is considered a disadvantage, particularly for the upper beds. No provision has been made for curtains. In Teacher Training Colleges no Common Room has been provided, which is a great loss to the users. Ablution Blocks The number of toilets, showers and washbasins is sufficient. However, no incinerators have been installed in girls' ablutions. In future, consideration should be given to have toilet facilities within the hostels because they can then be better looked after. Laundry facilities are not good enough. The rooms are too small and not supplied with sufficient numbers of electrical sockets. - 110 - Ablution block at Munali Secondary School. p op Al Supply of equipment The supply situation. In general, the equipment and apparatus supplied to Secondary schools and Colleges are of very good quality (except for the typewriters). One major criticism that could be raised is that they are too good for our needs. However, the distribution of this equipment was carried out in a very unsatisfactory manner. First and foremost, it was a mistake to order them as early as 1971 when we were not sure that the buildings were going to be completed by 1974, the target date Most of the equipment arrived in 1972 and was stored away for three to four years under unsatisfactory conditions. The warehouse of about 600 in', which was built exclusively to store this equipment and furniture, was too small and could take only 20 to 25 per cent of the supply. The rest had to be stored in the open under unsatisfactory protection for as long as four years. Secondly, most of the equipment was packed at the source of its origin into units which could be sent direct to the institutions: a very wise arrangement. However, it appears that in many cases the packings were not carried out according to specification or, alternatively, the specifications were not clear enough to the suppliers. Something went wrong somewhere, and the schools did not receive all that they were supposed to have received. This is particularly so in the case of laboratory equipment and workshop tools. It is rather difficult to assess the extent of short supply from the source of origin until such a time as the distribution of all the items has been made from warehouses. Most of the schools have communicated to the Project Unit with regard to the short supply and damage. Apparently, little is being done to rectify these errors. In a few cases the schools themselves do not know what they are entitled to have. Copies of Master Lists were distributed, but apparently some have not received them or might have misplaced them. To make things worse there was no formal handing over and taking over. The whole exercise of supplying various equipment and apparatus for office use, Science laboratories, Homecraft, Industrial workshops, Commerce department, etc., was so massive and so complex that the personnel, limited both in number and experience, were not able to carry it out with sufficient competence - 111 - A much larger problem is the maintenance of the equipment, apparatus and installations. No provision has been made in the loan agreement with regard to maintenance and it is clearly stated that it is the responsibility of the borrower to adequately maintain the buildings and equipment of the educational institutions and make all necessary renewals and repairs in accordance with sound technical and administrative practice. This aspect is discussed in detail in Section 3.4. Science equipment The Science equipment supplied to schools under the Project is of good quality. In compiling the list the inspectorate was influenced by the Secondary School Science Pilot Project (SSSPP). The SSSPP has failed and been abandoned. Due to the absence of an effective system of monitoring within the Project Unit, no amendments were made to the original list. As a result, some rather sophisticated and low-priority items were purchased. However, a resourceful teacher could use these items with full benefit. To the less resourceful some of the items may appear redundant. It should be noted that not a single school has received the full supply of equipment and apparatus listed under each room unit. Some of the equipment received is damaged and some arrived with parts missing and others are without the operation manual. Apparently rio effort is being made by the Project Unit in solving the problem of short supply and the replacement of damaged items. Domestic Science equipment. The equipment supplied to Domestic Science departments is of excellent quality and is relevant to the existing course. Only the relevance of the course is in question. The relevance of following the Cambridge syllabus in cookery should be reassessed. As a prevocational course the emphasis should have been more on the side of needlework, dress designing, cutting, etc. The storage facilities provided for housecraft/cookery rooms and needlework rooms are not adequate. It is difficult to arrange the equipment and utensils in such a way that they are easily accessible to the pupils and teachers. There is no proper protection for this equipment. Burglar bars are not provided in a sufficient way. The tables provided for needlework are too small for dress cutting. Fitting rooms are not provided with long mirrors. Hanging space and show-cases are not provided for the display of garments. The Bernina sewing machines are very good. Some Chinese machines that have been supplied did not come up to the same standard. Commerce equipment. The Olivetti typewriters supplied are of incredibly poor quality. They are totally unsuitable for student use. More than 50 per cent of the typewriters supplied to schools were out of use within three months. In one of the schools visited only seven out of a total of thirty-seven supplied are in working condition. The situation can only be rescued by providing a steady supply of spares and a team of well-qualified technicians visiting schools at regular intervals. The other alternative is to completely write off all the typewriters. Other equipment supplied is of standard quality. The typing tables and stools are flimsy and will require regular maintenance, as mentioned earlier. Workshop equipment. The Workshop machines and tools are of excellent quality and are so sophisticated that they are irrelevant to the course of study we follow at present, in our junior and senior classes. They are not the type of machines for any pre-vocational course of study but are suitable for Vocational Training. For workshops only there are- about eleven different contracts and supplies from ten different countries. Only two contracts are with Zambian companies, and the remaining companies have no representatives in Zambia, creating problems of spares and servicing. The lack of trained teachers in wood- and metal-work leaves the equipment unused and unsupervised for long periods, resulting in deterioration and loss of tools. To run the equipment and carry out the routine maintenance will require specially qualified technicians. To use the machines effectively the Ministry will have to: formulate a suitable curriculum which will lead to professional certification by the Department of Technical Education and Vocational Training; take immediate measures to recruit and train suitably qualified teachers; provide the necessary funds for the running expenses. - 112 - Access to the workshops should be restricted. It was deplorable to note that some of the workshops are at present used as store-rooms with mattresses and beds piled over machines worth several thousand Kwacha. It is of the utmost importance that we seal off these workshops until we find suitable technicians conversant with their use. Meanwhile, steps should be taken to service the machines periodically so that they may remain in good working condition. Further, we should make sure that teachers who are being trained at Luanshya Technical and Vocational Teachers' College get sufficient experience in using the type of machines installed in our Secondary schools. Office equipment. The office equipment and furniture supplied to new schools are satisfactory. However, new schools are not supplied with safes/strong rooms. Safety of money, confidential papers, external examination papers, etc., cannot be ensured under the existing situation. Audio-Visual Aids. The Audio-Visual equipment supplied is very good. The only problem is that it is so sophisticated that it requires equally sophisticated materials and personnel to run them without the risk of damage. Using Audio-Visual Aids to support and re-enforce classroom teaching without interruption and distraction is a skill to be cultivated. Unless steps are taken to train teachers in the use of this equipment they may do more harm than good. Library Books One hundred and fifty thousand kwacha was allocated for the purchase of library books. The list was prepared early in the project planning, around 1970. The first consignment, worth K100,000, arrived in 1976. The seven-year gap rendered some of the books out of date. However, early in 1976 a new list was prepared and purchases worth K25,000 are being arranged. The balance of nearly K25,000 may be made available for purchases locally. Physical Education Physical education has been rather neglected. K1,500 was made available for new schools to carry out the dozing and levelling of a sports field. Construction of playgrounds and running tracks is left to the self-help effort of pupils, teachers and parents. Music No provision is made in the Project for music. Implementation of educational objectives Various constraints to fulfil educational aims have already been outlined in Section 2.1. Even though these constraints were identified and necessary steps were suggested in good time to overcome them, there is little evidence to indicate that all suggested steps were put into action. There was some expansion in the staffing of the Planning Unit and the Inspectorate. But the effectiveness of the expansion, especially of the Inspectorate, was considerably hampered by transfers, retirement and resignations There was never a time when the Inspectorate had its full establishment. The pressure of administrative work, transport difficulties, lack of funds for running expenses, lack of co-ordination efforts and poor secretarial assistance limited the extent of supervision and guidance. There was never a common forum to discuss educational objectives, priorities and targets. There was no educational expert attached to the Project Unit to monitor, evaluate and modify priorities and targets with respect of the changing situation However, it should be noted that the Planning Unit within the Ministry of Education had introduced modern statistical methods to assess the input, throughput and output of schools. Co-ordination of the educational programme of the various ministries is rather poor and apparently very little effort is being made to improve the situation The shortage of qualified teachers in specialised subject areas was identified earl\ enough. A recruitment drive to get qualified teachers for Industrial Art, Commerce, - 113 - Agricultural Science, Home-craft and Mathematics never produced satisfactory results. Training such teachers for Secondary schools was started only later in the day. Lack of experienced Heads was cited as a constraint and in-service training for Heads and regional staff was agreed upon. Unfortunately, nothing has been done to enrich the knowledge and experience of Heads and regional staff. The National Council for Education has remained dormant since 1971. In short, most of the constraints in achieving the educational objectives of the Zambia World Bank Education Project, though identified as early as 1969, are still there as retarding forces. Projected Target Enrolment There is no doubt that the projected target enrolment will be reached without any difficulty. However, it is most unlikely that we will ever reach the output target in terms of 'O'-level passes in the specified senior secondary courses, such as General Art, Science, Technology, etc., unless the enrolment is stepped up and clear directives with regard to curriculum arrangements laid down for individual institutions. The contention that as far as possible schools should follow the same curriculum is more idealistic than practical. It may be realistic as far as Junior Secondary courses are concerned. However, this policy has adversely affected the teaching and learning in the senior secondary sector mainly because we have failed in providing: the specialist teachers to all schools; the necessary materials; and adequate supervision and guidance. Lack of central planning and direction have left the individual institutions to follow their own curriculum arrangements without any set target. Schools still follow the Cambridge Subject Grouping and allow and even encourage candidates to choose the easiest combination of subjects to get a pass certificate. National manpower needs and individual career interest often play very little part in the choice of subjects. Heads are apparently not aware of the targets set under the Project. They have received no directives with regard to what constitutes a General Art course, a Science course, a Commerce course, etc. In fixing the targets and priorities, not enough thought and weight was given to the Zambian situation and manpower needs. Apparently, those involved were heavily biased towards the problems in other developing countries, where job placement of senior secondary school leavers poses a great challenge. When our manpower needs for 1980 are estimated to be 10,000 at degree level, 18,000 at diploma/certificate level, 52,000 and 106,000 at Form V. and III levels, respectively, as indicated in the Appraisal Report (2), it will be seen that we have placed our targets rather low in the purely academic field. There is an over-emphasis on the diversification of the Senior Secondary programme so as to include pre-vocational coui ses Pre-vocational study is a useful component of general education and is a preparation for vocational study, but in itself it is not an answer to the problems of individual job placement and manpower shortage The emphasis should have been on parallel development of the academic and vocational training departments Consultations with Heads of Schools, particularly with regard to the physical alterations to be carried out, were totally absent, a very unfortunate thing to happen. The contention that most of the Heads were inexperienced and were new in their particular schools holds lo water. The same was true of the inspectors and most of the other planners. The argument that it was very expensive to get the Heads for consultation is one of these sad instances of being penny wise and pound foolish. Very little was done to reorganise the curriculum and produce relevant sN Ilabuses ann teaching materials to fit in with the educational objlectives laid down under the ZWBEP It would appear that the project is nothing but an exercise in erecting sophisticated structur(s and providing flimsy furniture and expensive equipment. It is gratifying to note that a Curriculum Council and various Curriculum Committees have been set up to look into the matter. The proposed Educational Reform has identified the probtems and has suggested ways and means to combat them - 114 - 3.2. Architectural aspects Location The main criteria for selection of sites for new schools were the availability of water and electricity at the least expense. The schools were normally placed as near to the population as possible to minimise walking distances. Day schools were located in the middle of the populated areas, while Boarding schools were located some distance from the town or the township. Siting was done by central and local authorities and was approved by the Ministry of Education. The Consultants were not involved in the selection of sites although comments as to the suitability of some led to change of site for technical reasons. The locations were according to existing policy on siting and were, in general, good with few exceptions. 7 Ndekv Secondary X T rSchool seen from .* - ...-- ~r the coming sports field. Site Layouts In new schools, the site layouts are generally good. The rather compact layouts are less costly than the spread-out examples at the TDP schools. They also give shorter walking distances within the school campuses. Common facilities, administration, staff-room, library and assembly hall are centrally located and have good access by car. Noisy units (metal and wood workshops) have deliberately been separated from the main teaching area, which is considered an advantage. In boarding schools, dining/assembly halls are situated in between dormitory and teaching areas. The extensive use of paving reduces dust and upkeep problems. ... I Ndeke Secondary School. Covered walkway along the teaching areas. In extensions to existing schools, the new buildings added have, in general, improved site layouts, created courtyards and given protection from wind and dust. Extensive site works comprising walkways, pavings, gardening and surface drainage have improved the sites to a great extent. - 115 - n 4~ Chifubu Secondary School. Improved environment. Functional and maintenance Car access is good. Cars do not enter the school premises but rather touch it. Delivery is also made directly to workshops and kitchen. Cross-ventilation is more than adequate, it allows tor a lot ot lust, which is untortunate. Too much ventilation is a problem in some parts of the country in the cold season. Louvre windows have seemingly been used to increase the ventilation, but they also allow for a considerable amount of dust from passing cars, and otherwise, that has to be cleaned every day. Wind blows right through each unit because it is not possible to close the permanent ventilation. Extensive paving and lawns reduce the dust problem, and the layout and placing of units improve the micro-climate. Daylight seemed to be inadequate, despite all the windows. This might be explained as a result of the lack of colouring. Light is switched on to 'heat' the rooms in the cold season Artificial light is sufficient. Acoustics are acceptable, except for the combined dining and assembly hall. Steps to improve the situation should be taken, i.e. introduce sound absorbents, sound baffles or curtains. Sound insulation between rooms is not acceptable. In particular, writing with chalk oil the blackboard is disturbing next door. Noise penetrates easily through sandwich wall panels, and sound also travels through louvre windows and gable trusses. The heat insulation properties of the wall panels are reduced by using louvres and due to the permanent ventilation of the gable trusses. Some teachers complained that rooms were too cold in winter and too hot in summer, while others seemed to disagree. Many were of the opinion that the room units are satisfactory for our weather conditions. Mukuba Secondhry School. Fixed sun LTII4fI Wscreens along west elevation. Sun protection is taken care of by means of the roof overhang and the fibreglass sun screens, which solve the problem to a great extent. - 116 - The materials used, asbestos cement and concrete, need almost no maintenance. For future extensions new sandwich wall panels must be produced. As these panels have been specifically designed for this project, it might be difficult to produce these elements as and when required. Thus the flexibility aimed at is not easily obtained. Louvre windows will also account for high maintenance costs due to weak construction and wrong handling of the opening mechanism, as pupils normally bend the glas; to open. Storm water drains collect rubbish and are exposed to visitors, staff and pupils, which gives a bad first-hand inpression of the schools. The trenches are also too deep in most schools, and pose a risk for teachers and students. The gradient in some cases is too small to take water away, creating breeding places for mosquitoes. The extensive use of concrete ditches for rain water seems unnecessary in general, splitting the premises with a magnitude of canals. Appearance The school itself is easily distinguishable in the town or township. The various room units look the same and an identification problem is encountered as all functions are incorporated in the same characteristic modular system. The shape is unfamiliar to Zambian conditions and does not fit easily with existing pitched roofs. Ndeke Secondary School. Main entralCe. Strong feelings were evoked from a number of Heads and teachers. Many, did, however, admit that after some time they had accepted the appearance of the buildings. It definitely gives a strong character to the schools. Interior colours are few and the general impression is one of monotony and bleakness. External colouring is more acceptable. It seems as if the Consultants have not taken the opportunity of using colours to improve the visual environment. Inside finishes ... .. . and outside. - 117 - The system creates problems when subdivision of the unit space is required. This necessitates the introduction of suspended ceilings or fitting the partition walls to the curved ceilings, which is technically difficult. The building system is very good as regards adaptability to various site conditions and various space requirements, apart from the problems raised above. Inside finishes are rather dull because of the unpainted asbestos walls and ceilings, concrete columns and gutterbearms. The floor screed, steel posts, doors, arches, hangers and tie beams, which are all painted, do not significantly change this impression. Outside finishes are more acceptable. Staff Houses Siting. The general impression is that siting of the staff houses is acceptable, although some locations were questioned by local teaching staff (Chalimbana TTC and Copperbelt TTC). It is difficult to lay down general recommendations on the siting of staff houses as the conditions vary considerably. As a general rule, the staff housing area should have its access separated from that of the school and there should also be a minimum distance (of say 300 m) or some sort of physical barrier (or vegetation) between the school buildings and the houses to ensure a certain degree of privacy. Design. It is felt that Zambian (African) social and cultural tradition is not taken into account when designing the houses (layout of bedrooms, toilets, outdoor space, etc.). This applies to both types, whether designed by Buildings Branch or Norconsult A/S. The Building Branch types are generally of an unsatisfactory appearance. Some improvements could be achieved by the use of more imaginative colours. The courtyards are too small and need a hard surface (especially the kitchen courtyard) to be used as an outdoor room. The bedrooms are generally too small and locating the children's and parents' bedroom in different parts of the house would have been preferable. Staff houses at ~bEEEE!EEEE.W~~,Chipata Day I f rSecondary School. Design- Buildings The Norconsult types have unsatisfactory cross-ventilation and daylight. The lack of windows and the corridor-like layout of the house contribute to make the type rather unfamiliar. The rainwater guttering is not satisfactory and water splashes down into the courtyard. Staff houses at L IIe Nyimba Secondary School. Design Norconsult There is a certain need for a somewhat bigger house for large families as well as a smaller (flat-type) house for singles or small families. There should be a range of house sizes rather than the present range of standard types, e.g. the 321/322 types for headmasters and deputies and the 311/312 types for the teaching staff. This would also comply better wi1h the policy recommendation of the Teachers' Union to accommodate all primary and secondary teachers on an equal standard. - 118 - Ancillary staff houses at Nyimba Secondary School. Design. Norconsult A/S. Teacher Training Colleges The design of the four extensions to existing Training Colleges is simple and straighttorward, and fits in well with the surrounding buildings. _q Kitwt Teacher -Traimng College. New extensions linked together with covered walkways. Construction consists of concrete block walls and partitions. Externally the walls are rendered and painted; internally the walls are of painted plaster. Simple use of well-known materials. Men's hostel at Kitwe Teacher Training College. Ablution facilities (left) centrally located with dormitory blocks around. Floors are screeded concrete, except for areas where PVC tiles are laid in laboratories and homecraft rooms. Roofs are corrugated asbestos set at a low pitch and laid on steel trusses with wide overhanging eaves. Windows and door frames are standard metal sizes. Fittings are blockboard, with plastic laminate tops. Ventilation is good and maintenance should be minimal. 3.3. Furniture and Fixtures - 119 - Loose Furniture Furniture supplied under this Project was designed by Norconsult A/S and embraces a large number of different items. The drawings and specifications arrived at were mainly intended as a guide for the tenderers, who would be able to adjust the design to their own methods of production and thereby achieve conapetitive prices. From ZWBEP's Warehouse. Furniture in 'knocked-down' condition. The design is based on the use of square tubular steel frames and chipboard with veneer or formica surfaces. Each furniture item consists of parts put together by using accessories and Allen Keys. The fixing of chair seats and backs is done with 'pop-rivets' - a sophisticated assembly method which makes furniture repairs nearly impossible. The assembly method applied, using screw-joints for steel frame connections, has proved extremely weak and not sufficiently resistant to rough handling by students. The design is not especially robust and unless each single furniture item is taken care of before too much damage has been done, the cost of maintenance and repair will be very high, or the items will be beyond repair. To improve this situation to some extent, steps were recently taken by the Project Unit to weld some of the especially exposed joints to strengthen the furniture, leaving the already delivered items to an unknown future. Broken furniture items at Ndeke Secondary School. During visits to the various institutions, members of the Team were confronted with a considerable amount of damaged or totally broken down furniture items. Most items still in use were disappointingly shabby and, clearly, do not stand ordinary wear and tear. The delicate formica worktops were stained, hard wood edges were coming off, painted steel frames were peeling off, the frames were bent and shaky, etc., etc. In general, the Team has found that the design and quality of the materials specified, as well as the standard of manufacture, are totally unacceptable and substandard. The easy - 120 - breakage of furniture items is mainly due to a delicate design, basically wrong and unsuitable for school purposes at all. The Team also found that there are too many types of tables and chairs, which again adds to the problem of sorting and distribution. Fixtures Concrete worktops are very rough with poor detailing in surfaces, edges and corners. Concrete supporters do not correspond with steel posts and steel and china sink units are awkwardly joined together with concrete tops. The slit between the worktop and wall is most unpractical for cleaning. In general, this solution seems to be a step backwards. Concrete workbenches on steel angles and supporters in ablution blocks seemed to be a far better solution. Ir Examples of bad detailing and sub-standard workmanship. The folding blackboard system is good, but the actual construction of the blackboard is poor and would have to be improved for future use. The locker bank units are weak with regard to hinges and locks. Their relevance is in question since only a minor part of them are used. -g ,-. Lockzr bank unit at - -r Mukuba Secondary 3.4. Technical Aspects The construction system The Team is of the opinion that the three-month period used on the preiminarm studies was far too short to allow the Consultants to familiarise themselves with local conditions and the skill and capability of Zambian contractors and manufacturers of building mateuials his has resulted in what the Team considers to be the premature decision of the RP! (8) to adopt an industrialised building technology and a construction system based on prefabrication of components and on-site assembly Even though the manufacturing skill existed to produce prefabricated components, the capacity of the local industry and its vulnerability to disturbances in the supply iystem was not thoroughly investigated in the initial planning stage. The report on the construction system (9) arrives at the conclusion that a conventional design would not meet basic design criteria with reference to connection freedom, concentration possibilities, site orientation, etc., and that the proposed gutterbeam - 121 - system was the answer to meet the planning requirements. The Team is of the opinion that this analysis is biased in favour of the proposed system and that a more thorough investigation of improved conventional methods should have been carried out. The way the cost comparison between the recommended system and the very conventional and uninspired design of a TDP classroom block is presented, in the report on standard items (12), supports this opinion. Although the costs are almost identical, the advantages of the proposed solution only are considered and no indications made of possibli improvements to the conventional design. Introduction in a developing country like Zambia of a construction system based on prefabricated elements and industrialised techniques must be taken after very careful consideration of the consequences for the future, i.e.: Is the system of a general nature, design-wise and construction-wise, so that it can bt adopted for general use? Will the local expertise needed to ensure future use of the system be available? Are the components of a kind that are normally produced and available on the local market? Is the system dependent on the outside technology, supplies and manpower and what are the foreign exchange implications? The Team concludes that these questions were not taken fully into consideration by the Client and the Consultants and that this has been a weak point in the decision making. Building materials and components All the basic building materials used in the Project are well known in Zambia and can be produced locally from local and imported raw materials. The sandwich-type wall panels, although built up of locally produced components, are introduced for the first time in Zambia. The panels seem to stand up well to normal treatment by students but do not have adequate strength to resist hard kicks and deliberate breaking by burglars. Additional burglar-proofing is, therefore, required in rooms where expensive equipment is stored. Doors are too weak and it is anticipated that, because of exposure to rain in many cases, they will quickly be damaged. The solution with flush doors to fit into the steel frames of the light wall construction is unfortunate and problems of adjustment will be quite extensive in the future. Ceiling trays were particularly developed for this Project, as well as fibreglass gable elements and sun-shading elements. All these items are purpose-made and replacements will be difficult to obtain when needed. Old tree incorporated in the layout at Nyimba Secondary School. Performance of the contractors No contractor has been oble to meet the tolerance specifications of the construction system This fact indicates that these criteria have been set without proper knowledge of the performance standard and capabilities of the Zambian contracting industry. - 122 - Despite this, the appearance of the schools visited by the Team leads to the conclusion that most of the work has been completed with acceptable workmanship. Weak spots are normally floor finishing and painting, assembly of building fixtures and fitting of doors and windows. The delays in construction are substantial and caused by the interaction of a multitude of circumstances. The financial difficulties encountered by most of the contractors are due to a general underestimation, inefficiencies in management, supply system and site supervision, and the enormous increase in the costs of materials, only partly compensated by the Client. This situation has also resulted in a certain reluctance or unwillingness to complete outstanding minor works, especially in the remote areas. This is likely to persist for the liability period as well. Services, plant and mechanical equipment Electrical services seem to have been well incorporated in the design apart from a few akward details, i.e. the crossing of the gutter beam. Geysers used in some of the teaching units and staff houses are not yet connected. Pipes for gas, water and outlets are fitted directly to the asbestos wall panels which makes repairs and maintenance easy to carry out. However, in many cases pipes are fixed completely regardless of the modular construction system applied with objectionable details as a result. Water intake and outlet at Chizongwe Secondary School. The gas installations were not completed in any of the schools visited and great problems are envisaged in the regular supply of gas canisters, especially outside the major urban areas. * Water/gas a 3 Kambule Secondary V U U NSchool. Coldrooms have been installed in the teacher trainig colleges and boarding schools only. In two of the teacher trainig colleges, the machinery was never installed, due to problems encountered with the sub-contractors Hence, the installation work was taken out of the contract and commissioned to MSB who, however, have been unable to carry out their obligations, the reason being lack of transport. In the Secondary schools visited some of the machinery was not in operation - 123 - Water Supply Apart from a few projects where the work is in an early stage of execution, or not yet started, the water supply schemes are in most cases almost completed but not yet commissioned. This has led to a situation where schools with an increased intake of students still have to rely on the old and most often insufficient water supply, causing great problems for the use of toilets and ablution blocks. The very critical point of running and future maintenance of the water plants remains unsolved. The arrangement, under which the contractor would train a local plant operator during a fourteen-day period of commissioning, has not at all worked and there are, in general, no trained personnel available to run the pumps and treatment plant. Although the equipment is, technically, comparatively simple, it is definitely outside the experience of th- local plant operators and maintenance personnel. In general, the design of the new waterworks is deemed to be adequate, according to the established needs and the water quality standards laid down by WHO. The plant and equipment selected also seem to be reasonably simple and robust. In some of the places where the schools rely on water supply from local township reticulation it is, however, feared that the capacity of the township supply will fall short of the schools' requirements. Although the consultants seem to have worked in close contact with the Department of Water Affairs (Headquarters) and the design is based on information supplied by that Department, the anticipated capacity of reservoirs, pumps and mains has been overestimated, leaving situations where alterations to the original plans have to be made on site to make the schemes operational. Il Old water tank at Kambule Secondary School. Water tower at Petauke Secondary School. The performance of the main contractors is generally good, even though some of the electrical works undertaken are substandard. There have also been some delays in delivery of the equipment, normally caused by importation and supply problems. On the water tanks so far examined by X-raying, the welding (on-site as well as in the workshops) does not meet the specifications set and the problem of securing the tanks is not yet solved. The subcontractor (ZECCO) has, however, undertaken to rectify the situation. - 124 - 3.5. Maintenance General Policy The Loan Agreement states that it is the responsibility of the borrower to adequately maintain the buildings and equipment of the educational institutions and make all necessary renewals and repairs in accordance with 'sound technical and adminisi rative practice'. The Consultants, as part of their services, have prepared a general Maintenance Manual. This manual needs to be tailored, e.g. for spare parts requirements, to the needs of each particular (type of) school. Buildngs No wear was observed on the steel and concrete structures and they are obviously of a nearly maintenance-free type of construction. So far no wall panels have been broken due to regular use. They are, however, easily broken in the case of a burglary. Some electric switches had been removed and the open leads constituted a safety risk. A great many glass louvre sheets had been broken and were not replaced. The louvres do not seem to have the sufficient mechanical strength (broken handles) and the glass fitted had a tendency of slipping out when the louvres were operated a bit roughly. This point will require constant future maintenance and replacements. Sanitary installations (cistern handles, toilet seats, taps and basins) were already extensively worn and future maintenance requirements will be of considerable magnitude. The policy of using normal type closet bowls and vitreous china hand basins is questionable. According to tradition an 'Asian'-type squatting WC would have been a better solution, from a maintenance and cleaning point of view. Also, from a hygienic point of view it should be possible to make it a better solution, with a sunken floor made for flushing. Concrete or steel basins would have been more robust to the very rough handling. Sanitary installations, as a whole, should have been of a heavy duty quality. School. Furniture The very low quality of the furniture will be a future maintenance and replacement burden. Allen Keys and Umbraco-bolts will likely not be available and welding of the steel frames is the only possible way of repairing tables, chairs and stools. The local caretakers will, however, very rarely have the skill or equipment to undertake such repairs. The concrete worktops need frequent painting and broken edges are not easily repaired. The cupboards are not of much use because the bolts supporting the shelves are removed or lost and cannot easily be replaced. Equipment The future service, repair and maintenance of workshop equipment will be seriously hampered by various factors, the most critical being: the sophisticated and partly delicate nature of most of the equipment and the lack of local expertise (including teachers) to carry out servicing and repair, - 125 - the anticipated lack of spare parts and service facilities because of the non-existence of Zambian agents/representatives for the equipment delivered; import restrictions for spare parts and replacements; and no running and maintenance instructions for the equipment are made available for the teaching and maintenance staff. The same observations also refer to the water supply installations and the kitchen equipment. It is highly doubtful that the local Public Works Department or Mechanical Services Branch will have the expertise necessary to carry out regular servicing and repairs, say, by keeping the stock of spare parts needed to ensure smooth running. ,4J,, Purchased, installed but out of order - for how long? Organisation of maintenance The need for maintenance and repair of the school buildings and the equipment is heavily dependent on the nature of their use. Rough, indisciplined and uninstructed handling and lack of regular cleaning cause a rapid decline in the general conditions of room units, installations and equipment. The standard of cleaning varies widely and is obviously very much related to the interest and dedication of the headmasters and teachers. Some schools were tidy and clean, others very messy, dirty and in a state of rapid deterioration, especially with regard to toilets, ablution units and furniture. The planning and organisation of future maintenance beyond the responsibility and capability of the single school is not properly arranged. There is confusion as to where the responsibilities of the Project Unit and the Ministry of Education end and where those of the Provincial Commissioner of Works start. The Provincial Commissioners of Works have been reluctant to take over the new schools for maintenance as they have not been involved in the planning and implementation stage of the construction. The central contact between the Project Unit, the Director of Buildings and Norconsult A/S has in this case proved insufficient and Buildings Branch has evidently failed to satisfactorily inform its local departments on this matter. Some sort of established liaison between the Provincial Commissioner of Works and the site engineer would probably have facilitated the take-over process. As some of the construction components used in the new buildings (especially the wall panels) will not be generally available on the market, a stock of building components must be held, locally or centrally, and workers must be trained to carry out repair and alterations on the room unics within the introduced construction system. The responsibilities for maintenance of installations and equipment are equally confused, as at least three different agencies will be involved, namely, Mechanical Services Branch, Buildings Branch and Department of Water Affairs. This situation must be solved in order to organise supply and possible stocking of spare parts, as well as to train people on the servicing of plant and equipment. This is also of imperative importance for the efficient - 126 - running and maintenance of the water supply. A merger of the Water Section of the Provincial Buildings Branch, and the Provincial Water Engineer (Department of Water Affairs). under the latter's umbrella, should be looked into. At present none of the agencies seems to be willing to take on responsibility for the new water schemes. The responsibilities of the Mechanical Services Branch in servicing the kitchen equipment must also be sorted out. 3.6. Project documentation Tender procedures and contract documents The international tendering required by the World Bank had implications for the documentation and the tender and contract conditions, as discussed in Section 2 9. For contractors with some experience in international tendering this did not create major problems, although conditions differed somewhat from Zambian standards. The factors causing concern were, primarily, that the Bill of Quantity took preference over drawings and that areas and volumes (theoretically) were accepted by the signing of the contract. The latter regulation had to be dropped for practical reasons as work proceeded and the severe omissions and errors of the bills of quantities came to light. The conditions for additional works were new compared to local practice. In Nome cases where 'special conditions' are applicable, the terms for additional works are negotiable and somewhat unclear. Drawings and specificatioihs The decision to employ the CBC system for project documentation has, in the opinion of the Team, proved to be unfortunate. Several circumstances lead to this conclusion, inter alia: The Consultants did not have the proper experience with the system and, though employing an expert, this led to running-in problems on the system and grave errors and omissions in the tender documents for the first contract groups. The system proved to be far too sophisticated for local contractors and resulted in wrong pricing and omissions and misinterpretation of drawings and specifications, leading to disputes, delays and extra costs. The system did not prove to be the expected management tool to the Client, whose financial control system is based on rather conventional accounting methods. The system has created an additional workload for the Client, as much of the reporting has to be undertaken by the site engineers on behalf of the contractors. The views of the parties involved, as expressed in interviews, are discussed in more detail below: The Consultants' view The repetitive nature, the magnitude of the Project and the short time available for planning and implementation, made it necessary to employ a satisfactory management and control system. As EDP facilities were available in Lusaka the Consultants decided to apply a fully computerised system and found the CBC system most suitable to meet the planning and control requirements. The Contractors' view The introduction of the CBC system and the computerised bills of quantities caused great confusion among the contractors as the tender documents did not have any resemblance to conventional types. In some cases their confusion resulted in underestimating, partly due to the unfamiliar split between supply and labour and partly because of the grouping of all items in one bill of quantities leading to the use of the same unit price regardless of location. (The inclusion of differentiated rates was, however, fully possible.) The contractors were not able to take advantage of the complicated CBC system and even the more advanced firms did not succeed in training their staff to fully understand and operate it and handle the internal reporting routines. Even now, five years after - 127 - its introduction, some firms could not take any advantage of the system and had to rely on the assistance of the site engineers. Particular difficulties occurred for the on-site personnel, whose often poor knowledge of English and low-level training made them unable to cope with the higly technical coding and sophisticated specifications. The errors and omissions in the bills of quantities were substantial for the first groups that went to tender, causing additional difficulties of managerial and financial nature. It should be stressed, however, that general mismanagement of some of the contractors should not be blamed on the CBC system. Many of the financial problems faced by some contractors are due to managerial and organisational weaknesses of the firms and lack of financial control and discipline. The Site Engineers' view: No training or introduction in the CBC system was given prior to the stationing and some difficulties were encountered in familiarising with the system. Misinterpretation of drawings, resulting in construction mistakes and alterations, has occurred on most sites because of the system and insufficient training of site agents and Supervisory Engineers. Proposals put forward to NORAD to arrange training and introduction courses for the Supervisory Engineers at Norconsult A/S headquarters in Norway or locally have not brought about any response. The Site Engineers have, in most cases, been forced to act on behalf of the contractor's site agent in filling in the 'Monthly Interim Payment' forms, thus taking on a certain responsibility for the contractors' financial situation. The Project Unit's view: The inadequate documentation of the early tender groups, due to inexperienced personnel on behalf of the Consultants, caused a lot of problems and additional costs. The Consultants were advised by the Project Unit to get assistance from an experienced quantity surveyor in preparing the codification, but this was not implemented as the Consultants were of the opinion that the Danish expert employed was sufficient. In general, the Project Unit has not benefited from the CBC system. The prevailing impression is rather the contrary. The Project Unit has worked out a breakdown of the additional expenditure procured on group M which acted (with group Q) as a trial group for the tender documents and the proposed design. The figures show that omissions and errm-c and changes in design stand for as much as 7.3 per cent of the contract sum. Per cent K of Total 1. Normal variations (quantities) . . 38,300 3.9 2. Omissions from the bills of quantities . 48,300 5.0 3. Changes in design . . . 22,400 2.3 4. Extras required by Client . 73,000 7.5 Total variations/extras 182,000 18.7 Total contract sum group 'M' 972,000 3.7. Project Management The Consultants As far as the Evaluation Team has experienced, the Consultants have carried out their services in an efficient and practical manner in accordance with the rather specific World Bank conditions, as defined in the Contract for Professional Services. Due to the extended construction period, the burden on the consultants has increased far beyond the agreed Terms or Reference and Plan of Operation. The Consultants have shown willingness and ability to adjust themselves to the drastically changing and unpredictable conditions and have shown readiness to undertake the extra work involved. Throughout planning and construction supervision the Consultants have had well-qualified and experienced personnel working effectively in all fields of the project. The work has been presented to the Client in well-defined reports, clearly stating the Consultants' proposals. - 128 - From the Consultants' points of view the computerised CBC system has undoubtedly been a very helpful management tool, despite the errors and omissions to be corrected in the tender documents. The errors and omissions, however, resulted in a lot of extra work for the Client organisations and, judging from the information available, the Team is of the opinion that the errors and omissions have increased the costs. The decision to use the CBC system was, as previously mentioned, taken without thorough knowledge of the system and its management implications. The responsibility of introducing the system was solely that of the Consultants, and the heavy criticism raised against it from contractors, the Project Unit and some of the Site Engineers has only one addressee, namely the Consultants. At the initial stage, the Consultants had to cope with certain irritating difficulties hampering the progress of work, such as lack of office accommodation, staff housing and equipment that were to have been provided by the Client In addition, time was lost because of the non-co-operation of the Project Unit in preparing a Client's Brief. Though basic information on the educational system and policies in general was available from the Loan Application (25), the Consultants had to seek additional and mort detailed information from individuals in the Ministry of Education in order to prepare a more extensive planning brief. This was an extra burden on the Consultants and not a regular part of their work. All later phases of planning and construction supervision have been performed in good co-operation with the Project Unit as well as with the Ministry of Education and the World Bank. Approval routines, as worked out by the Consultants, have all along been functioning well and the approvals and recommendations needed from the Client organisations have not been a delaying factor in the Consultants' work. The fact that the Consultants, the Site Engineers and most of the Project Unit staff have all been Norwegian and closely linked to each other through the management operation and the office arrangements, has had advantages as well as disadvantages. The advantageous sides of it have been the easy ways of contact and co-operation, the non-existence of a language barrier and the development of a very good and open working relationship. The decision-making has been simple and quick with a minimum of 'red-tape' involved. The disadvantages have been the absence of clearly defined roles and the often overlapping responsibilities of the Consultants and the Project Unit, especially with regard to the Site Engineers' role. The fact that they partly report to and are directed by the Consultants (on professional matters), and partly by the Project Unit, is unfortunate and creates confusion when conflicting situations appear. The Site Engineers have aired views that their positions, as some sort of 'middlemen' in some cases, have led to situations where they protect the interests of the Consultants more than those of the Client. For the future a more clear distinction of responsibilities and authorities is therefore advisable. The Project Unit Being the client Ministry's supreme body in the management of the ZWBEP, it was incumbent on the Project Unit to select the consultants tor the various construction works. The crucial decision made by the Project Unit to employ Norconsult A/S was based on the assumption that a company offering international consulting services in engineering, architecture, economics and associated fields was the right answer to secure a practical execution of the vast secondary school component of the Project. Due to lack of experience in physical planning of educational facilities, it was beyond the capability of the Planning Unit, Ministry of Education, even though strengthened in 1970, to estimate the implications of a prefabricated building system, and approval to the Consultants was given on the assumption that 'they should know how to do the job'. All additional information needed about the educational system and the changed curriculum, not outlined in the Brief, was channelled verbally through the Project Unit to the consultants, and the extent of briefing was entirely dependent on the people responsible for communication of the Client's intentions to the designers. This was a serious weakness in the management which proved to hamper the smooth running of the initial planning phase. - 129 - The first Project Director, for instance, refused categorically to discuss and assess educationil matters related to the Project. The Consultants were in due course forced to operate directly with the Ministry of Education to seek necessary information on vital educational objectives. On the Client's side, there was no experience in formulating a building programme, ioi' a tradition in making such a document. Buildings Branch, in charge of the four Teacher Training Colleges, also had to work without a specific brief, but being a far less complicated project in terms of requirements, size and costs, and normally dealing with educational buildings, the designers from this end were more familiar with the situation and the relationship to the Client was much easier to achieve. The basic set-up of the Project Unit, comprising four full-time experts and additional secretarial staff as required, has, in the opinion of the Team, proved insufficient for administering a large-scale project like this, especially in the running-in phase. Due to the under-staffing of the Unit it has, inter alia, not been possible to undertake a profound evaluation of the building system introduced in general and the numerous details in particular. The number of supervisory staff was disproportionately large in the initiation stage, before actual construction started in earnest. To make use of the engineers, they were in more cases involved in soil investigations, site surveying and mapping of existing schools as drawings obtained from Buildings Branch were in many ways insufficient for project planning purposes. However, the situation changed drastically later in the project implementation, to the effect that the number of Supervisory Engineers, although increased, was insufficient in view of the workload. Due to the grouping of schools, which were sometimes rather geographically split, the engineers had to spend up to 50 per cent of their working time on travelling from site to site. This has, indeed, not been satisfactory to anybody, as the result has been less time on actual construction supervision and quality control. The Supervisory Engineers were entitled to sanction variation orders within a ceiling of K200. Due to the omissions and errors in. the Bills of Quantities, they had to issue variation orders on construction work, far beyond this stipulated sum, to keep the Project running. Too much of the engineers' time was spent on delivery and distribution of furniture and equipment. They had to assist the Heads of institutions in this matter besides acting as the local representative of the ZWBEP, since no adequate information from the Ministry was given to the Heads about the building programme Heads of institutions were not invited by the Project Unit to participate in site meetings and were, moreover, neglected, as far as administrative matters were concerned, with the result that they became alien to their school and the use of the facilities provided. Furniture Management No testing of materials or quality control of steel tubes was undertaken when a representative from the Project Unit visited Israel to get a visual impression of the range of furniture items being manufactured. When the furniture items started to arrive in the country in 'knocked-down' condition at the beginning of 1972, the storage facilities were far smaller than actually required for proper storing. A considerable number of pallets with furniture parts was therefore stored outside and exposed to wind and weather, some of it during three rainy seasons. Present situation At the Warehouse premises. - 130 - The Project Unit did not pay sufficient attention to this critical situation, neither did the delay in the construction schedule influence the organisation of the furniture supply and the Warehouse capacity. Importation of furniture items and equipment continued in a steady flow, making the situation disastrous. The system of distribution and assembly of furniture was based on sending parts to the various schools for local assembly. However, descrepancies in the assembly drawings provided by the supplier caused great difficulties in shipping assembly accessories in the correct size and right amount required, as the sending out was based on information from these drawings. Disastrous waste of Th Poec.Ui Outdoor storing of woode tabletops The rojct nitrecommended, at the very beginnmng, that assembly of furniture should be done by the supplier. This would ensure that the responsibility for correct assembly and handing over of the items in accordance with the specifications remained with the supplier. Unfortunately, this suggestion got no response from the Central Supply and Tender Board, who instead awarded the contract for assembly to the Zambian co-operative firm, 'Kwibombela'. However, this company failed completely to carry out its obligations and after a year the work had barely started. A lot of pallets with furniture parts had been sent to the schools and, after a while, a lot of parts disappeared. Furthermore, the contents of the pallets did not always correspond with the documents. VV Warehouse. Furniture = items spread all over - the ground. - To overcome the assembly procedure the Project Unit has organised a team of workers operating from the Warehouse. However, a highly questionable decision, made solely by the Central Supply and Tender Board to make use of the Prison Services for this job in place of 'Kwibombela', has only brought about more difficulties in managing the supply scheme. The administration, purchase and distribution of furniture and equipment for seventy institutions has been a task far beyond the capacity of the Project Unit. The management of supply of furniture and equipment is really a sad story, amounting to a scandal. The Team has found that serious failures have been made in all stages, from the approval of the design of furniture up to the delivery of items to the various schools, and that the Client will continue to suffer from this fact in the years to come. - 131 - The Project Unit has a central position in approving the names of contractors. All qualified contractors entered on a list prepared by the Unit were invited every time a new group of schools was sent out to tender. Tenders, based on Norconsult's documents, were submitted to the Central Supply and Tender Board who informed the Consultants, through the Project Unit, of the result. Recommendations made by the Consultants were passed through to the Board again with the intervention of the Project Unit. Plastic drawers just dumped at the ground. After the Tender Board's decision had been made, the Project Unit was commissioned to sign a contract on behalf of the Government. Normally, this routine has worked well, without major constraints or delay to the implementation of the construction of the schools but, as far as the furniture supply scheme is concerned, the fixed decisions made b) the Board have indeed been unfortunate and have added a mass of problems to the Project Unit's management situation. In the opinion of the Team three major factors have made the Project Unit's methods of administration less efficient, namely: Understaffing and lack of continuity. Since the Project started in 1969, five Project Directors, three Project Architects and three Finance Controllers have been appointed to the Unit. An under-utilisation of the Supervisory Engineers' high qualifications by the low degree of responsibilities delegated and an inefficient use of their capacity. Weak administration of the furniture and equipment supply scheme, due to underestimation of the enormous task and a lack of experience in this field. A~ kp New cooking pots worth thousands of kwacha damaged and thrown aside. - 132 - The Planning Unit The Development and Planning Unit, as well as the Inspectorate, was expanded ai a result of the UNESCO Mission's proposal (1). The expansion took place at the same time as the Consultants embarked upon the Preliminary Studies Report (8) but, being newly established, it seems as if the Planning Unit was not in a position to effectively monitor, co-ordinate and evaluate the flow of information between the Ministry and the Project Unit/Consultants in the crucial initial stages of planning. This could be attributed to inexperience, with regard to both the Planning Unit and the Inspectorate, and also discontinuity in the staffing as far as the latter is concerned, as transfers and retirements may have reduced its effectiveness. The Planning Unit, on the other hand, has exhibited extraordinary continuity of staff in key positions from 1970 onwards, following a definite process of Zambianisation. In 1976 the Chief Planning Officer was seconded to the Project Unit as Project Director, the first Zambian to hold this appointment. On the side of the Client, there was no tradition or understanding of the importance of making a Brief, but it should also be noted that the Project Unit at this stage was a major obstacle in this process as basic information on educational intentions and objectives outlined by the Client were held up by the Project Director and not communicated to the Consultants. In the transitional period of establishing the Planning Unit, important decisions as to site layouts, the room unit system and the construction system were made, and it seems no one challenged or objected to the proposals from the Consultants, who forcefully launched their ideas in the light of facts that all agreed on, namely the short construction period, limited funds and lack of skilled labour. It is also unfortunate that the Ministry's expertise was not involved in the organisation and procurement of furniture. As the Project proceeded and as the Planning Unit gained more experience and was established as a team, it played a more significant role It was the Planning Unit that gradually revealed some of the shortcomings, as far as the Working Papers (3) were concerned, and which initiated remedial steps to be taken. This included, nter alia, the shortages of staff houses and of boarding accommodation (the Bank had wrongly assumed 20 per cent day pupils in boarding schools) and the insufficiency of water supplies. During the construction period the Planning Unit successfully assisted in securing work permits, the supply and transport of materials, obtaining import licences and in foreign exchange operations. The co-operation between the Project Unit, the Consultants and the Ministry of Education has almost all along been one of mutual confidence. Matters referred to the Planning Unit have been dealt with promptly, in view of the established channels of information and procedures within the Ministry. It is when it comes to the liaison between Central, Regional and Local educational authorities that weaknesses have been observed. Headmasters were not consulted prior to the planning of extensions or conversions to their existing schools. Information supplied to them in this respect was scant and insufficient to allow for effectively planning the use of their educational facilities while construction work was going on. However, most Headmasters' Conferences held in 197 3 and, in both of these these conferences, the Project Director contributed on the actual construction programme. on the actual construction programme. The line of communication between Heads, Regional Offices, Contractors, Project Unit and the Ministry, as well as the role of each body, was unclear and resulted in unauthorised decisions, lack of action when requested and lack of feedback from the users. This was a hampering factor during the first phase of the implementation period, but the situation improved thereafter. Only when construction was in advanced stages did Heads and Regional Officers effectively contribute to the Project, but this was confined to minor alterations and to the case of the Consultant-designed staff houses, which were abandoned as a result of these officers' criticism. The World Bank's involvement in the Project As the major supplier of investment capital to the Project, the World Bank imposed strict procedures on the project planning and management. The Bank's involvement also strongly influenced the educational policies and, to many Zambians, this 'guardianship' was - 133 - unacceptable. The negotiating strength of the World Bank officials further underlined this and at the early stages in the project planning the Bank acted by dictating rather than advising. The World Bank also insisted on international tendering, although the appraisal report (8) predicted that international contractors would most likely not be interested. The international tendering resulted in an unnecessarily time-consuming procedure that could have been avoided had the Bank followed the suggestion set out in the appraisal report. The Bank did not require competitive bids for the consultancy services, and its policy on the use or association of locally based consultants was more generally than specificalfy outlined. To the Team's knowledge, this has now changed, and the Bank now positively encourages the commissioning of local firms or co-operation between international firms and local firms whenever possible. This ensures utilisation of locally available knowledge as well as better transfer of professional expertise needed for further development of planning and design methods. Both the ZWBEP and the Zambia design sector would have benefited mutually if such arrangements had been made for the Project. . During implementation, the Bank carried out regular supervisory missions to investigate physical progress and the financial position of the Project. However, these missions could obviously not contribute much to solve the problems, mostly of local origin, hampering implementation. NORAD's involvement in the ZWBEP NORAD has played a significant role in financing and implementing the Project, by undertaking to cover most of the Consultants' fees, the recruitment and payment of Project Unit personnel (excluding local staff) and by taking on the payment of the debt services for one-third of the third IBRD Loan. NORAD's contribution has undoubtedly been conducive to easing the implementation of the Project financially, and the stable provision of well-qualified Site Engineers and Project Unit personnel would probably have been impossible without the assistance of an outside agency. The expected benefits to the Zambian Society of this finaicial and technical assistance may be discussed from two different angles: The contribution to the development of the educational system and the achievement of educational aims. The 'spin-off' effects of the massive assistance programme, in terms of construction sector development and the training of manpower. While there are few doubts as to the educational benefits of the extensive expansion of secondary education and teacher training facilities, in terms of increased ouput and improved quality, there is little evidence that there has been any significant spin-off effect from the Project in terms of trained manpower, development of professional knowledge in project management and construction skills. The great potential for training of manpower embodied in a large-scale project, like the ZWBEP, was apparently not appreciated by the Zambian authorities involved or by NORAD. There has been no counterpart system either in the Project Unit or among the Supervisory Engineers. Although at least one hundred man years of highly professional expertise has passed through the Project Unit, virtually no Zambian has improved his or her skill significantly as a result of this. A certain transfer of planning and management experience to the Planning Unit and Inspectorate of the Ministry of Education has, however, taken place, even though the effect of this is obviously weakened by the high turnover of contract personnel in the Ministry. In terms of construction sector development, the relatively sophisticated building methods and the industrialised techniques have not resulted in any wider application of these methods or a permanent production of system components. (The only positive effect would be the skill developed in producing insulated panel sheets.) The introduction and use of the CBC system has only benefited the Consultants' management procedures. No Zambian or Zambia-based planner/consultant understands the system and can make use of it in a future situation. Very little of the experience gained during five years in running an unprecedented Government construction project will ever remain in Zambia, but much will be scattered all over Norway. - 134 - Construction and supervision in Zambia is different from the Norwegian system, and the Site Engineers had normally little factual knowledge of the local (British) construction procedures when appointed. A short training period at the Norconsult Headquarters, as proposed by the Consultants, was not endorsed by NORAD. This decision was anfortunate and the Team cannot find any good reason as to why this suggestion was not supported by NORAD. There has been no continuous professional monitoring of the Project from NORAD's side; apart from the fact that the Team has not been able to obtain any basic information on the Project from NORAD because of this lack of continuity, this must obviously also result in great shortcomings in NORAD's policy-making and planning. The Team strongly feels that a project monitoring and evaluating machinery should be established within NORAD, to support the planning of new technical and financial assistance projects. Such machinery is invaluable in securing feedback to the planning of future projects and programmes and to ensure that remedial measures are taken to correct policies and rectify errors. It would be highly unfair to put the blame for the very meagre spin-off solely on NORAD as a donor organisation. The observations made are equally directed to the Client and recipient of technical and financial assistance. However, the Team feels that this aspect of development needs much more attention and should, therefore, be brought to light for the benefit of planning future assistance. 3.8. Cost analysis Objectives and Data The cost analysis of the Project has the following objectives: To describe the cost history of the Project and its various components for the various parts of Zambia. To compare construction costs and their regional variation. To provide a basis for comparison between the Norconsult-designed and conventionally designed school buildings. To describe the impact on the Zambian economy and the distribution effects of the Project. To establish cost data for use in future educational planning. The analysis is based on accounts data presented by the Project Unit as per 30th June, 1976, and projected costs for the components of the Project that are not yet completed. The total actual expenditure is, therefore, not known, but it is felt that for the purpose of cost evaluation the estimates will, by far, have the degree of accuracy needed to draw firm conclusions. The cost analysis includes expenditure financed by the World Bank loans as well as Zambia's own contribution from internal sources (so-called MOE expenditure). A proposed allocation of K225,000 for furniture in the 1977 budget is not included, as this expenditure is not finally decided and allocated. Data on the construction areas are given by Norconsult A/S as summary figures for the respective contract groups (21). Unit costs are calculated for the various groups on the bases of actual or projected expenditure and the areas given. Norconsult has also provided cost summaries and areas for all new schools. The 1975 Enrolment figures are obtained from the Ministry of Education Statistics (22) and per capita investment figures are based on the 1974 census of population figures produced by the Central Statistical Office (24) - 135 - Summary of total costs Tables 3.8 (a) and 3.8 (b) overleaf give the total cost of the secondary schools programme and the Teacher Training Colleges, respectively, compared to the original cost estimates (see Section 2.5). The total cost overrun is estimated as follows: Cost overrun (Km), compared to: 1969 estimate* 1973 estimate* Secondary schools . . . ...... 18.7 (80%) 5.8 (16%) Teacher Training Colleges ...... 0.8 (50%) -0.2 (-8%) *1969 estimate according to Zambia I Work Sheets (3); 1973 estimate according to Zambia III Work Sheets (15). A detailed breakdown of the cost overrun is given in Tables 3.8 (c) and 3.8 (d). For the Teacher Training Colleges the actual costs are very close to the 1973 estimate. For the Secondary schools the overrun refers to building and site works (K3.2 million), professional services (K2.2 million) and staff houses (K1.0 million). The cost of the water supply project is KO.55 million below the 1973 estimate. The total cost increase of K5.8 millon over the 1973 estimate is relatively modest (16 per cent), especially when compared to very steep rise in general building costs experienced during 1974/75. This fact is largely due to the very favourable tender prices resulting from the hard competition in the construction industry in 1971-72. The substantial increase under professional services is mainly due to the severe delays in execution of the Project, as discussed in Section 3.7: Project Management. Table 3.8 (a). TOTAL COSTS SECONDARY SCHOOLS (KOOO) Components New Extensions Total Schools 1. New school buildings . . . . . . . . 5,600 10,981 16,581 2. Remodelling . . . . . . . . . . . - 4,178 4,178 3. Staff Houses . . . . . . . . . . . 2,053 4,783 6,836 4. Water supply . . . . . . . . . . . 298 2,802 3,100 5. Furniture and equipment . . . . . . 916 4,951 5,867 6. Professional services and administration 1,400 3,684 5,084 Total Cost 10,267 31,379 41,646 Table 3.8 (b). TOTAL COSTS TEACHER TRAINING COLLEGES (KOOO) Location* Components 1 2 3 4 Total 1. School buildings . ........ 291 344 544 339 1,518 2. Staff houses . . ........27 166 23 204 420 3. Furniture and equipment . . . . . 25 70 88 34 217 4. Professional services and administration 44 66 76 72 258 Total Cost 387 646 731 649 2,413 *1. Kabwe TTFC; 2. Chalimbana TTC; 3. Kitwe TTC; and 4. Copperbelt TTC. - 136 - Table 3.8 (c). SECONDARY SCHOOLS-ACTUAL COSTS AND FINANCING (K000) LOAN 1 (1969) LOAN 111 (1973) MOE Esti- TOTAL Actual Estimate Actual Estimate Actual mate Actual Estimate Buildings . . . . 12,010 (11,130) 1,200 (1,180) 420 (-) 13,630 (12,310) Site Works . . . . 4,930 (3,420) 1,920 (1,820)2 280 (-) 7,130 (5,240) Staff houses (ex site work) . . . . 2,020 (1,330) 4,400 (4,530) 420 (-) 6,840 (5,860) Water works (including equipment). . . - - 3,100 (3,650)2 - - 3,100 (3,650) Furniture and Equipment . . . 5,470 (5,480) 400 (370) -1 (-) 5,870 (5,850) Professional Services. 3,780 (1,590) 1,160 (1,330) 140 (-) 5,080 (2,920) Total 28,210 (22,950) 12,180 (12,880) 1,260 (-) 41,650 (35,830) Notes: 1. K225,000 proposed for 1977 budget is not included. 2. Site works and water works combined in the worksheets. 3. Estimates not available. New hostel blocks at v 4 Teacher Training 1 College. Table 3.8 (d). TEACHER TRAINING COLLEGES - ACTUAL COSTS AND FINANCING (K000) LOAN 1 (1969) LOAN III (1973) TOTAL Actual Estimate Actual Estumate Actual Estimate Buildings l (1,010) (230) (1,240) ...... 1,200 300 1,520 Site Works (180) (170) (350) Staff Houses . . . . . 60 (40) 360 (390) 420 (430) Furniture and equipment. 150 (240) 70 (110) 220 (350) Professional Services . . 180 (170) 80 (70) 260 (240) Total 1,610 (1,640) 810 (970) 2,420 (2,610) - 137 - The impact on the Zambian economy In the period 1971-76 an estimated K529.6 million was spent on education. Details of the pattern of expenditure and the annual growth rates are given in Table 3.8 (e). Table 3.8 (e). EXPENDITURE ON EDUCATION 1971-1976 (Km) Growth rate* Recurrent Capital Total Share 1971-76 Primary education 183.7 20.9 204.6 (38.6) +8.9 Secondary education 90.8 45.1 135.9 (25.7) +11.7 Teacher Training . . . . 11.4 7.0 18.4 (3.5) +13.9 Technical education . . 36.6 31.5 68.1 (12.9) -4.7 UNZA . . . . . . . . 32.7 13.9 46.6 (8.8) +3.6 Others/Administration . 50.7 5.3 56.0 (10.5) +8.2 Total 405.9 123.7 529.6 (100.0) +7.1 *The growth rates are calculated on the basis of total expenditure, as there are significant variations in capital expenditure from one year to the other. A summary of the Secondary school investment per province is given in Appendix D. The investments are highest for the Copperbelt Province (K8.8 million or some 21 per cent of the total cost) and is lowest for North-Western Province (K1.7 million or 4 per cent). What is more relevant, however, would be to relate the investment costs to the population of the provinces and the increase in student capacity. Table 3.8 (f) below gives the number of student places in GRZ schools, in terms of number of student places per 1,000 inhabitants in 1971 (before the Project started), and the anticipated increase resulting from implementing the Project and other parallel development in the same period. The figures are based on planned enrolment and estimated population figures for 1971 and 1976 (see Appendix E). Table 3.8 (f). NUMBER OF SECONDARY SCHOOL PLACES IN GRZ SCHOOLS PER 1,000 INHABITANTS, 1971 AND 1976/77 Total number of new places Other 1971 1976 Increase Project development Luapula . . . . . . . . . 8.3 15.7 7.4 2,230 - Northern . . . . . . . . . 8.5 14.2 5.7 3,630 110 Central . . . . . . . . . 8.1 12.9 4.8 1,650 1,570 Copperbelt . . . . . . . . 15.3 19.8 4.5 8,750 260 Eastern . . . . . . . . . 5.0 9.2 4.2 2,310 570 Southern . . . . . . . . . 6.5 10.6 4.1 1,950 600 North-Western . . . . . . . 8.4 11.4 3.0 750 250 Western . . . . . . . . . 7.5 9.3 1.8 1,310 - Lusaka . . . . . . . . . 14.8 13.0 -2.7 1,160 410 All provinces 9.6 13.7 4.1 23,740 3,770 There are variations in the availability of secondary school places from one province to another, although the Project has had some equalising effect. As for places in GRZ schools, the Copperbelt has kept its leading position far ahead of the other provinces, despite the considerable increase in population. Typical rural provinces, like Luapula and Northern, have significantly improved their position while, especially, Western and Eastern are still lagging behind. - 138 - The total Government expenditure on education increased by an average of 7.1 per cent per annum in the period 1971-76. The annual growth in Gross Domestic Product (GDP) in the period 1971-75 is estimated at 5.0 per cent. This low figure is, however, mainly due to the steep fall in GDP during 1975. For all years, except 1975, the growth in GDP has been higher than that of the education sector. The Government expenditure on education constitutes 5.6 per cent of total GDP for the various years of the period. This figure is high compared with other African countries and indicates that Zambia has given educational development a high priority in her national planning. The total investment of K123.7 million in the period 1971-76 is, however, less than envisaged in the Second National Development Plan, which planned a total investment of K115 million (in fixed 1972 prices) over the period 1972-76. Secondary education and Teacher Training have been the sectors with the highest annual growth, clearly due to the development programme within these sectors. The growth rates are, however, lower than the average growth in overall Government expenditure and indicate that the educational development seems to have been within the economic capacity of the country. It should be added, however, that the full impact of the Project will not materialise before 1977-78, when all schools are fully operational and running at capacity. It should also be noted that the excessive pruning of the recurrent expenditure, as has been the case in 1976/77, will most probably have a significant reducing effect on the quality and the efficiency of education. Regional impacts of the Project The secondary school component of the ZWBEP is affecting all provinces in Zambia, while the teacher training component is confined to the Copperbelt and Central provin es. The magnitude of the former component makes it interesting to evaluate the regional investment pattern and to investigate the school investments in the light of the educational priorities for the various provinces. The situation has visibly deteriorated in Lusaka, which has faced a real drop in GRZ secondary school places compared to the increase in population over the last five years. More than half of the total Project investment and more than 60 per cent of the new student places are concentrated in the Copperbelt, Luapula and Northern provinces. These provinces also had the majority of secondary school places before the Project started (1971) and this position has been reinforced by the expansion programme (see Appendix E). However, to obtain a real picture of the availability of secondary school student places one has to take into account the number of places available in Goverment, kided and Private Schools. Table 3.8 (g) below lists the total number of school places available for each province and the relative density of school places. Table 3.8 (g). TOTAL NUMBER OF SECONDARY SCHOOL PLACES, 1976/77 Number of school places Per 1,000 Total inhabitants Southern..... ............ .. 12,303 220 Copperbelt . . . . . . . . . . . . . . 24,125 20.9 Luapula . . . . . . . . . . . . 6,405 20.3 Northern . . . . . . . . . . . . . 9,936 16.6 Lusaka . . . . . . . . . . . . 7,780 16.4 Central . . . . . . . . . . . . . . 8,678 13.1 North-Western . . . . . . . . . . . 3,471 13.1 Western . . . . . ... . . . 6,279 12.9 Eastern . . ... . . . . . . . .7,278 , 12.2 All provinces 86,255 17 3 - 139 - Although the total availability of secondary school places has greatly improved as a result of the Project, there are still considerable regional differences, with especially Eastern, Western, North-Western and Central provinces considerably under the average. The drop in the availability of secondary school places in Lusaka is also notable. While there were 19.4 student places per 1,000 inhabitants in 1971, the number has dropped to 16.4 for 1976. Lusaka is the only province where the secondary school situation has actually deteriorated during the project implementation period. With reference to the estimated 1976 population, the per capita investment is highest for Northern and Luapula provinces (approximately K18.00 and Kl 3.50, respectively). The lowest per capita investment has taken place in Lusaka and Central provinces (K4.50). These differences are partly due to the regional variations in building costs and the fact that all rural schools are built as boarding schools with full staff housing, but the figures do also reveal a regionally unevenly distributed investment, as indicated above. Summary of construction costs Appendices F to H give a breakdown of the costs of the building and civil engineering works for the new Secondary schools and the remodelling and extension of the existing schools and teacher training colleges. In order to study the regional variation of building costs the secondary school component has been split in provinces. The construction and civil works total K30.7 million for the Secondary schools ana K1.9 million for the teacher training colleges. For the former group this total cost is composed as follows: Building construction: Construction of new school room units.... . . . . 31% Alterations to existing room units . . . . . . . . . . 14% Staff houses...... ................... ... 22% (67%) Civil Engineering Works: Site works ...... ................... ....23% Water supply :........ ................. 10% (33%) In order to compare costs for contracts executed at different points of time, a common basis for comparison must be created. By reducing all cor tract prices to the 1971 price level a comparison of building costs can be carried out in a meaningful way. For this purpose a building cost index has been constructed, based on the Central Statistical Office price index for building materials and the statutory wages. These indices are then combined, assuming an input split of 65 per cent materials and 35 per cent labour. (This input split corresponds to the following composition of building costs: materials 48 percent, labour 28 per cent, overhead costs 24 per cent, reflecting the average input structure of the construction industry in Zambia.) The indices are shown in Table 3.8 (h). Table 3.8 (h). BUILDING COST INDEX (1971 = 100) 1971 1972 1973 1974 1975 Statutory wages . . . . . . 100.0 100.0 100.0 104.0 104.0 Materials . . . . . . . . . . . . 100.0 105.0 110.5 139.7 154.5 Combined . . . . . . . . 100.0 103.2 106.8 127.2 1368 All contracts are referred to 1971 prices by deflating the actual prices, as per tender date, according to the combined index. The annual increase is assumed to be uniformly distributed over the year - 140 - Based on the deflated building costs and the construction gross areas for the various tender groups as submitted by Norconsult A/S, unit costs are calculated for the various provinces (Appendix F). There is a clear regional variation in the building costs between the line of rail and the other provinces, as indicated in Table 3.8 (i). Table 3.8 (i). INDEX FOR REGIONAL VARIATION OF BUILDING COS'IS (cost per m in 1971 prices) [ine of rail N E NW L W Room units . . . . 77 K/m2 = 100 104 127 114 125 117 Toilet blocks . . 119 K/m' = 100 117 122 106 116 103 Staff houses . . . . . 142 K/m2 = 100 108 107 115 139 147 However, the indicated regional variation is somewhat ambiguous as the average figures conceal great cost ranges, ds well as the fact that some contracts have 'better' prices than others (i.e even causing a loss to the contractor). Table 3.8 (j) shows the calculated average unit costs and the recorded range. Table 3.8 (j). REGIONAL COST VARIATIONS (Unit costs K/M2 gross area*) Line of rail Other provinces Average Highest Lowest Average Highest Lowest A. In fixed prices (K/m2). 1. Room units .......77 95 74 88 98 82 2. Toilet blocks . . 119 133 108 138 145 122 3. Staff houses . . . 142 156 130 169 209 153 B In actual prices (K/m') - 1 Room units . . . . . . . . . (83) 128 79 (96) 102 87 2. Toilet blocks . . . . (131) 180 122 (146) 160 134 3. Staff houses . . . . . . . . (174) 212 155 (183) 225 163 *'Gross area within centre lines of external walls' (21). The regional variation of building cost is surprisingly less than normally estimated (e.g. by Buildings Branch), especially when the recorded range of costs is observed. This could possibly be related to the grouping of schools into bigger 'tender packets', but one should also keep in mind the highly varying performance and pricing policy of the contractors and the subsequent variations in final costs following from the substantial delays in completion. Comparison of building costs It is difficult to compare unit costs of different buildings in different places and a cost comparison will always run the risk of oversimplifying and overlooking local variations and specific circumstances, like differences in the room programme, the performance of the contractor, the supply situation, etc. Two rural boarding schools (boys), based on the same schedule of accommodation as corresponding ZWBEP schools, have been erected in the same period. These are Chongwe (Central Province) and Pemba (Southern Province) Secondary Schools, tendered in 1971 and 1972, respectively. The schools are designed by a Zambia-based architect, Erhard Lorenz Associates and are built with conventional methods (load-bearing brick gables and partitions, pitched roof on longitudinal steel lattice trusses with asbestos roof sheeting and ceiling sheets of expanded foam, infill walls of bricks, painted) The building costs (including preliminary and general items) of the two schools, based on finalised accounts and converted into 1971 prices, are shown in Table 3.8. (k) - 141 - One of the many courtyards at Chongwe Secondary School. Table 3 8 (k). COST SUMMARY, CHONGWE AND PEMBA SECONDARY SCHOOLS Areas (W) Costs (KOOO) Gross Net 1971 Actual prices A. Chongwe 1 Site works . . . . . . . - - 293 293 2 Room units . . . . . . 8,282 5,676 516 516 3. Toilets . . . . . . . . 133 83 10 10 4. Staff houses . . . . . . (n.a.) 235 235 Total Chongwe 8,415 5,759 1,054 1,054 B Pemba 1. Site works . . . . - - 228 221 2 Room units . . . . . . 8,368 5,776 507 491 3 Toilets . . . . . . . . (included under 2) 4. Staff houses . . . . . . . - - 201 195 Total Pemba 8,368 5,776 936 907 The unit costs in terms of K/m2 in fixed 1971 prices are Cbongwe Pemba Net Gross Net Gross area area area area Room units (K/m') . . .... 91 62 85 59 Toilets (K/m2) . . . . . . . . 120 75 - - . 4- at Chongwe Secondary School. - 142 - The new ZWBEP schools, 102 Chinsali, 104 Nyimba and 108 Mansa, are all hased on the same schedule of accommodation and the same number of boarders (620). To make a direct cost comparison possible, some provision must be made for the higher building cost in these locations as compared to Chongwe and Pemba, located on the line-of-rail. Because of the significant difference in design it would also be more relevant to compare unit cost per m2 net area. Table 3.8 (1) shows a cost comparison of the five schools, based on the following assumptions: For ZWBEP the ratio between gross area and net area is stipulated at 1.05 (source: Norconsult's preliminary Design Reports). Unit costs calculated for 101 Chinsali, 104 Nyimba and 108 Mansa are reduced to 'line-of-rail-costs' by the index figures indicated in Table 3.8 (i). Table 3.8 (1). COST COMPARISON FOR RURAL BOARDING SCHOOLS (620 students, 1971 'line-of-rail' prices) Net area Unit cost (KOOO) m, (K/M2 net) Chinsali . . . . . . . . . . . . . 453 4,550 100 Chongwe... ............. ....526 5,760 91 Mansa.... .............. ... 417 4,620 90 Nyimba . . . . . . . . . . . . . 545 4,670 116 Pemba...... .............. 491 5,780 85 * Excluding site works and staff housing. It is difficult and somewhat incorrect to draw clear conclusions from this tentative cost comparison. However, it indicates that unit costs for conventionally designed and constructed schools are at the same level or lower than those of Norconsult design and that total costs are of the same magnitude.* *Calculations carried out for the Copperbelt and Kitwe TTCs give the following unit costs, respectively. Room units . . . . . . 103/101 K/n (average 102 K/m2) Toilet units . . . . . . 187/127 K/m2 (average 144 K/m2) Overall . . . . . . . 105/110 K/rn2 (average 107 K/n2) The quality properties and standards are not expressed through an economic comparison. The Chongwe School visited by the Team was of a very high quality, with reference to the appearance of the buildings, the quality of the workmanship and the school's environment. It should also be noted that the space standard (m2/student) is higher for the conventionally designed schools. 5- Staff house at Chalimbana. Built cic 1940- still in - 143 - Basic Cost data for educational planning The cost analysis carried out in Appendices D to I gives a good basis for estimating building costs in the various parts of the country. However, there is often a need for basic planning figures when assessing educational plans and programmes at a preparatory stage of planning, and the following guidelines suggest a method for a first step assessment of project costs. The guidelines are based on an analysis of space requirements per student for various project components and an assessment of building unit costs and per capita furniture and equipment costs. The space requirements (net construction areas) for the various components can be stipulated as follows: Day school Boarding school 1. Classrooms and teaching facilities (m'/student) . 3.40 3.40 2. Boarding facilities . - 2.80 3. Toilets/ablution units . 0.25 0.60 Total (m2/students) 3.65 6.80 To arrive at goss areas 35-40 per cent should be added to the total figures in the case of conventional construction methods. (In the case of a Norconsult-type design the gross-up factor will be considerably less, say 5-10 per cent.) For a rough cost estimate, the gross areas thus calculated should be multiplied by the following unit costs for a school located in the major urban areas (line-of-rail, mid-1976 prices): Classrooms, etc. . . . 135 K/M2 Boarding facilities . . 135 K/M2 Toilets/ablution units . . 200 K/M2 To the calculated building costs should be added site-works normally constituting 20-40 per cent of the actual cost for the school buildings. The lower figure should be used for well-developed urban areas where water supply and sewage connections, access roads, etc., are easier to connect. An allowance should also be made for contingencies ( 10 per cent). For budgeting or similar purposes the estimates must also take into consideration the inflation factor. For locations off the line-of-rail the estimate must include a provision for the increased cost of supply, site arrangement, administration, etc. This can be done by applying the index figures shown in Table 3.8 (i), or by using the additions applied by Buildings Branch. School furniture and equipment can be estimated at K 150 per student in day schools and K270 per student in boarding schools (1976 prices). The staff housing element should be calculated on the basis of the planned establishment of teachers and ancillary staff and the construction costs for Buildings Branch-type staff houses. Appendix K shows an example of a cost estimate carried out along the lines described above. Comparison is also made with some of the Project schools, showing that the suggested method gives acceptable results for the purpose of pre-design estimates.  - 145 - Part Four  - 147 - 4. CONCLUSIONS AND RECOMMENDATIONS 4.1. The Team's dilemma An evaluation exercise is, by its nature, a critical assessment of actual achievements as compared to the goals and aspirations expressed at the outset of a project. It has been a recurring conclusion in the findings of the Team that the overall policy planning has been one of the more outstanding weaknesses of the ZWBEP. The predominant lack of explicitly stated educational and operational objectives for planning and implementation of the Project has also imposed problems on the evaluation, i.e., 'What are the yardsticks to which the achievements should be compared?' There is a danger that the lack of 'yardsticks' has led to a more critical (and negative) approach to the project evaluation than had been the case if clearly expressed objectives and planning targets had been present to a larger extent. The lack of planning objectives and targets has resulted in a situation where, in some cases, the values of the Evaluation Team have been the yardsticks, although the whole evaluation exercise, to the extent possible, has emphasised the aim of presenting the views and opinions of the various persons and institutions involved. Another important factor contributing to this critical attitude is the span of time involved and the obvious danger of being 'wise after the event'. In some cases the decisions taken date back more than eight years. Experience gained in this period will inevitably mix with changes in attitudes and values over the years. To illustrate this. the Team has concluded that the decisions taken on the adoption of building technology for the Project were premature and based on technical-economic criteria resting on a strong belief in modern technology and industrialised methods. What is easily forgotten is the professional atmosphere of the late 1960s, the wake of another economic and technological breakthrough and a profound belief that development was (only) a matter of technological progress and adoption of 'modern' methods. Today's professional and economic environment is different. Some lessons are learnt and a more critical attitude developed towards the adoption of sophisticated technology. This new professional acknowledgement partly explains what might be termed as harsh criticism of the decisions taken. 4.2. Completion of the Secondary schools The major achievement of the ZWBEP, the creation of some 24,000 new secondary school places spread all over Zambia, is at present threatened by the fact that no school, except for Hillcrest, is fully operational and most of the schools face severe deficiencies in their running. This is, in some cases, due to the severe delays in construction and the provision of the physical facilities. What is more critical, however, is the deficiencies created by the incomplete and insufficient supply of educational furniture and equipment, the technical facilities needed to enable the schools to operate effectively and the future maintenance requirements to keep the schools running. A crash programme should be launched without delay to: speed up to the extent possible the physical completion of schools still under construction; investigate the situation in each of the schools to sort out the present shortcomings and what actions will be necessary to make the schools fully operational (this exercise must be carried out in close liaison with the Headmasters and should incorporate a full inventory of furniture and educational and technical plant and equipment, the need for replacements and additional supplies required; inform the Headmasters and teachers about the intentions of the Basic Subject Room system and the functions and equipping of the various room units; and establish necessary maintenance routines. The discussion of educational and functional qualities of the schools will remain utterly academic, if the overall goal of the ZWBEP secondary school component, a nearly 60 per cent increase in student capacity in GRZ schools in the shortest time possible, is jeopardised by the fact that the schools will never be made and kept operational. The steps suggested must, therefore, be given the highest priority within the Ministry of Education and the Project Unit. - 148 - Educational conditions In order to improve the present educational situation and to correct some of the irregularities and obvious shortcomings discussed in Section 3.1, the Ministry of Education should revise the present educational objectives and practices, inter alia: The terminal objectives of the various pre-vocational courses should be clearly defined and the curriculum and the syllabuses of the senior classes should be modified to suit those objectives. The subject combinations which constitute the General Arts Course, Science Course, Technology Course, Agricultural Course, Commerce Course and Home Economics Course, etc., should be identified and detailed directives should be sent to all schools. An outline of curriculum arrangement and output targets for individual institutions should be centrally prepared in full consultation with the Heads. As far as possible Heads should follow the arrangement. Posting of teachers, supply of materials, allocation of funds, etc., should be carefully planned to meet the needs of the particular institutions. Immediate steps should be taken to recruit teachers for specialised subject areas such as Industrial Arts, Commerce, Agriculture, etc. For practical subjects such as Industrial Arts, Commerce, etc., a system of certification acceptable to industry and commerce should be introduced in association with the Department of Technical Education and Vocational Training. These certificates should be awarded to those who make an acceptable grade in their subject of specialisation. Equipment and machines of very sophisticated nature, which cannot be operated by less qualified teachers, should be stored away until qualified instructors are available or should even be withdrawn. An Audio-Visual Aid centre should be provided with facilities to train teachers in using, maintaining and repairing audio-visual equipment and apparatus. The upkeep of schools A satisfactory upkeep and maintenance of schools is a question of organisation and provision of funds. At present the funds allocated for maintenance of schools, installations and equipment, fall far short of the actual requirements. The annual funds required to prevent a deterioration of standards of the Project schools according to 'sound technical and administrative practice', would probably be in the region of: K 1.5% of building costs . . . . . . . . . . . 410,000 5.0% of equipment/water supply costs . . . . . . . 300,000 7.5% of furniture costs . . . . . . . . . 220,000 Total Maintenance costs 930,000 The total allocation for 'station upkeep' of all Secondary schools in 1976 was K200,000 - and the highly insufficient allocation for 'routine maintenance' of public buildings, channelled through Buildings Branch is, to a very small extent, used for GRZ schools. Unless this situation is drastically changed an accelerated deterioration of the standard must be expected. The organisation of maintenance is also crucial. Unless the first-line maintenance is properly organised there is little chance of keeping the relatively high standard of new buildings and equipment in an up-to-date state and achieve the educational benefits from the large investments laid down. - 149 - Instructions for the organisation of cleaning and first-line maintenance should be issued by the Ministry of Education and frequent inspections carried out to secure execution of a maintenance programme. Regional inspectors should visit schools once every term to check on the state of physical structures, installations and equipment. Any wanton negligence should be severely dealt with. The Maintenance Manual prepared by the Consultants is far too advanced for tne use oi local school staff, and the manual needs to be tailored to the needs of each particular (type of) school. A training and information programme should be introduced for caretakers, kitchen staff and plant operators. The planning and organisation of future maintenance beyond the responsibility and capability of the single school must be properly arranged. The present confusion must be sorted out by the Project Unit as soon as possible. The responsibilities for maintenance of installations and equipment must be solved and the roles of Mechanical Services Branch, Buildings Branch and the Department of Water Affairs must be clearly defined before the plant and equipment are finally taken over. A merger of the provincial Buildings Branch, Water Section and the Provincial Water Engineer (Department of Water Affairs), under the latter's umbrella, should be looked into As some of the building components used in the Project will not be generally available on the market (especially the wall panels and roof sheets), a stock of the most important materials must be held locally or centrally. Workers must be trained to carry out repair and alterations within the introduced construction system. Maintenance of equipment and installations is vital in achieving the educational objectives Maintenance units, with adequate transport, spares and technical personnel, should be set up to make all necessary renewal and repairs thereof in accordance with sound technical and administrative practices. Supply and stocking of spare parts must be organised and people trained to operate the new plant and equipment, e.g. water supply system and kitchen equipment. 4.3. Future educational planning in Zambia The achievements and shortcomings of the ZWBEP, although incompletely and perhaps tentatively described and discussed in this report, have brought about an extremely valuable experience for future educational planning in Zambia. This experience ranges from purely professional approaches with reference to architectural, technical and educational problems, to the very crucial and complex questions of policy formulation and planning organisation. Although having been dealt with quite extensively in this report, the former set of problems do not perhaps have the same relevance to future development as do the latter The most salient deficiency of the ZWBEP has been the failure to clearly define and elaborate the overall objectives and policies to form the guidelines for planning, design and implementation. Future planning must emphasise this imperative phase of planning, and every effort should be made to formulate not only the overall educational goals, but also a detailed policy framework or programme in which the planners can seek guidance and direction. The programming phase is in fact the only time a client has a real opportunity to influence and iecide on the end product without being substantially restricted by decisions already taken. A thorough programming of a project also requires a capable planning organisation and the involvement and co-operation of all relevant agencies The programming is by nature a client operation and can rarely be undertaken by the commissioning of consultants. The Planning Unit within the Ministry, strengthened and supported as necessary by representat,ves from the other wings of the Ministry, must continually be aware of the very important client role and the need to formulate operational planning and design objectives on the basis of the prevailing educational policy. The size of future educational projects must be cut to the managerial capabilities and should under no circumstances be allowed to reach the size of the present ZWBEP. The centralised project management system as employed for this Project will have a tendency of retaining all responsibilities and executive powers, as well as creating communication problems, and make extensive travelling r cessary. Future educational development should be split to a more manageable size, possibly decentralised to the regional level under the supervision of Ministry Headquarters officials on a seconded basis. Project management - 150 - expertise should be built up within the Ministry and its regional branches, rather than be concentrated in one-off agencies like the present Project Unit, where there is practically no professional feedback to the client and no training and accumulation of know-how involved. It is important that educationalists are fully represented when planning and design of new projects are undertaken. Without this contact the educational requirements will easily be overlooked or neglected. A permanent advisory committee representing all relwant interests should be set up within the Ministry of Education and be in charge of ah major projects. This would secure feedback of ideas and experience from the planners to the users and vice versa. Further, it would also be a means to gradually build up a local planning and management expertise. Local planners and consulting firms should be utilised to the extent possible and foreign consultants called upon to professionally strengthen local firms or provide special services not available within the country. This is the only way to ensure that at least some of the planning and design experience gained by new development will be retained in the country. - 151 - Part Five  - 153 - APPENDICES A. List of Secondary schools and Teacher Training Colleges visited. B. Senior Secondary school subjects and the Number of Candidates for the 1976 COSC Examination. C. Original Cost Estimates (Zambia I and Zambia III). D. Cost Summary Secondary schools (Zambia 1, Zambia III and MOE expenditure). Actual costs. E. Secondary school places and coverage, 1971 and 1976. F. Analysis of Building Costs (all schools). G. Cost Summary School Extensions/Remodellings. Actual costs. H. Construction Cost breakdown - New Secondary schools. I. Analysis of Total Costs - New Secondary schools. K. Cost Estimates - Examples. - 154 - Appendix A List of Secondary Schools visited: Type Name and category Location Province TDP Chifubu MUD Ndola Copperbelt Ex-Trust Mukuba BUD Kitwe - WB Ndeke MUD Kitwe - WB Kabundi MUD Chingola - Ex-Fed Kansenshi MUD Ndola - WB Nyimba MRB Nyimba Eastern TDP Petauke MRB Petauke - AED Chizongwe BRB Chipata - WB Chipata MUD Chipata AED Kambule BRB Mongu Western TDP Kaoma BRB Kaoma - AED Libala BUD Lusaka Lusaka Ex-Fed Kabulonga BUD Lusaka - Ex-Fed Kamwala MUD Lusaka - AED Munali BUD Lusaka - Ex-Fed Hillcrest BUB Livingstone Southern AED Linda MUD Livingstone - TDP Mumbwa MRB Mumbwa Central Type of schools WB . . . . .........World Bank, new schools AED . ........... African Education Department (Schools for Africans built before and within the period of Federation, 1953-63) Ex-Fed. . .......... Ex-Federal (Schools for non-Africans controlled by the Federal Education Department, 1953-63) Ex-Trust . . . ........Ex-Northern Rhodesia Educational Trust (Schools for Africans built by Mining Companies and handed over to Government) TDP . . . .......... Transitional Development Plan (Schools built throughout Zambia during 1965/66) Category of schools: BUD ... ............ ...Boys' urban day MUD . . . . . . . . . . . . Mixed urban day MRB . . . . . . . . . . . . Mixed rural boarding BRB. . . . . . . . . . . . . Boys' rural boarding BUB . . . . . . . . . . . . Boys' urban boarding List of Teacher Training Colleges visited: Copperbelt Teachers' College . . . . . . . . . Kitwe Kitwe Teacher Training College . . . . . . . . Kitwe Nkrumah Teachers' College . . . . . . . . . . Kabwe National In-Service Training College . . . . . . Chalimbana - 155 - Appendix B Senior Secondary School Subjects and the Number of Candidates for the 1976 COSC Examination No. of Subject candidat?s English Language . . . . . . . . . . . . . . . 7,676 Literature in English . . . . 3,129 Life of Christ . . . 1,962 Bible Knowledge 2,933 Christian Religious Education 81 History . . . . 5,539 Geography . . 6,178 French . . 526 Bemba . . . . . 1,903 Nyanja . . . . 691 Tonga . . ....653 Lozi . . 403 Other Languages . 28 Mathematics B . . . . . 5,205 Mathematics C . . . 1,522 Additional Maths . . ....... 120 General Science .. . . . . . . . . 671 Agricultural Science . 1,661 Physics . . . . . 468 Chemistry . . . . . . . . 435 Biology . . . . .. . .. . . 5,831 Human and Social Biology (Health Science) . . . 643 Physical Science . . 3,430 Art . . . . . . . ....... 379 Metalwork . . . . . . . 82 Woodwork . ............. . . 113 Metalwork Engineering . . . . . . .... 37 Needlework . . . . . . ....... ....... 293 Cookery. . . . . . . . . . . . . . . . . . 235 General House Craft. .. ...... ... .. 200 Geometrical and Mechanical Drawing . . . . 337 Geometrical and Building Drawing . . . . 39 Commercial Studies......... ............... ........... 88 Commerce.......... .......................... ... 2,858 Principles of Accounts . . . . . . . . . . . . . . . 392 Total 56,890 Original Cost Estimates (Zambia I and Zambia III) (K'000) (Figures in brackets include contingencies) Construction Furniture Professional Buildings Site Works Staff Houses Equipment Services Contingencies Total Zambia I I Secondary Schools (a) New schools 2,391 (3,038) 569 (723) 445 (565) 788 (837) 409 (519) 1,079 (-) 5,682 (b) Extensions . . . 6,369 (8,088) 2,123 (2,696) 600 (761) 361 (4,644) 846 (1,074) 2,965 (-) 17,264 2. Teacher Training . . . 798 (1,012) 239 (177) 31 (39) 226 (236) 136 (173) 307 (-) 1,637 Sub-Total (1 + 2) . 9,559 (12,138) 2,831 (3,596) 1,076 (1,366) 1,375 (5,717) 1,391 (1,766) 4,351 (-) 24,583 3 NORTiC . . . 582 (739) 53 (67) - 376 (379) 89 (113) 198 (-) 1,298 Total (1 + 2 + 3) 10,141 (12,877) 2,884 (3,663) 1,076 (1,366) 1,751 (6,096) 1,480 (1,879) 4,549 (-) 25,881 o% Zambia Ill I Secondary Schools (a) New schools . . . . . 106 (153) 568 (828) 845 (1,217) 34 (53) 203 (261) 756 2,512 (b) Extensions 710 (1,022) 3,181 (4,639) 2,305 (3,320) 212 (321) 828 (1,066) 3,130 10,368 2. Teacher Training . . . 158 (227) 121 (177) 268 (386) 75 (114) 51 (66) 297 970 Total (1 + 2) 974 (1,402) 3,870 (5,644) 3,418 (4,923) 321 (488) 1,082 (1,393) 4,183 (-) 13,850 (.rand Totals (including contigencies) 1 Secondary Schools . . . . 12,301 8,886 5,864 5,855 2,920 - 35,826 2. Teacher Training . . . 1,239 354 425 350 239 - 2,607 3. NORTEC . . . . . 739 67 - 379 113 - 1,298 Total (1 + 2 + 3) 14,279 9,307 6,289 6,584 3,272 - 39,731 Source IBRD Worksheets (3) and (15). Cost Summary (Zambia I + Zambia III + MOE) Secondary Schools (Actual Costs) c: c Percentage d _5split of costs Cost Categories 0 0 C 0 0 (a) (b) School Buildings 1,121 5,053 1,334 2,662 4,010 808 1,325 2,698 1,748 20,759 48.7 50.2 Staff Houses 280 1,000 285 1,309 1,664 250 477 1,084 487 6,836 17.6 18.2 Water Supply 122 29 244 268 364 141 1,263 441 228 3,100 7.4 4.9 Furniture and Equipment 427 1,635 352 653 1,028 280 548 597 347 5,867 14.1 14.1 Professional Services 250 1,089 303 712 1,013 199 407 704 407 5,084 12.2 12.6 Total Costs 2,200 8,806 2,518 5,604 8,079 1,678 4.020 5,524 3,217 41,646 Indicators 1 Planned enrolment 3,995 21,770 3,720 4,955 7,940 2,595 4,530 4,955 5,300 59,760 (percentage boarders) (19.3) (3.9) (72.5) (90.2) (84.5) (97.1) (98.2) (80.9) (72.5) (50.7) Ln 2. Increase in enrolment (over 1971) 1,160 8.750 1,650 2,230 3,630 750 1,310 2,310 1,950 23,740 3- Total cost per student (at planned K551 K405 K677 K1,131 K1,018 K646 K887 K1,115 K607 K696 enrolment) 4 Total costs per new student K1,897 K1,006 K1,526 K2,513 K2,226 K2,237 K3,069 K2,391 K1,650 K1,754 5 Total investment per capita (1976 K4.63 K7.62 K4.57 K17,79 K13.57 K6.31 K8.27 K9.32 K5.76 K8.34 population) 6. New students per 1,000 inhabitants 2.8 8.4 3.2 6.9 6.3 3.0 2.9 4.1 3.6 5.1 *Excluding Western Province (which has a different cost structure due to the extensive water project). eb0 Secondary School Places and Coverage, 1971 and 1976 1971 estimate* . . . . . . . . . 901 329 559 311 476 241 410 513 532 4,292 1974 census . . . . . . . . . . 1,046 321 580 401 519 256 463 540 568 4,695 1976 estimate* . . . . . . . . . 1,155 315 595 475 549 266 486 559 593 4,993 Enrolment 1971 GRZ Schools . . . . . . . . 13,815 2,725 4,746 4,610 3,858 2,021 3,219 3,353 2,648 40,995 V Aided/private schools . . . . . . 962 1,147 1,096 1,423 1,808 362 1,512 5,352 1,348 15,010 0 1974 GRZ Schools . . . . . . . . 16,124 3,298 5,462 5,339 4,430 2,596 3,658 4,698 3,208 48,8131 Aided/private schools . . . . . . 1,119 1,323 1,363 1,553 1,789 409 1,665 6,092 1,638 16,951 Extensions and new schools - Project .. 8,750 2,230 3,630 1,160 1,650 750 1,310 1,950 2,310 23,740 Other 260 - 110 410 1,570 250 - 600 570 3,770 Estimated capacity (1966/77): GRZ Schools . . . . . . . . . 22,825 4,955 8,486 6,180 7,078 3,021 4,529 5,903 5,528 68,505 Aided/private schools . . . . . . 1,300 1,450 1,450 1,600 1,600 450 1,750 6,400 1,750 17,750 Secondary School Coverage (places per 1,000 inhabitants) 1971 GRZ . . . . . . . . . . . 15.3 8.3 8.5 14.8 8.1 8.4 7.5 6.5 5.0 (9.6) Aided/private . . . . . . . . . 1.1 3.5 2.0 4.6 3.8 1.5 3.5 10.4 2.5 (3.5) Total . . . . . . . . . . . . 16.4 11.8 10.5 19.4 11.9 9.9 11.0 16.9 7.5 (13.1) At Project Completion (1976) GRZ . . . . . . . . . . . . 19.8 15.7 14.2 13.0 12 9 11.4 9.3 10.6 9.2 (13.7) Aided/private . . . . . . . . . 1.1 4.6 2.4 3.4 2.9 1.7 3.6 11.4 3.0 (3.6) Total . . . . . . . . . . . . 20.9 20.3 16.6 16.4 15.8 13.1 12.9 22.0 12.2 (17.3) *Based on 1969-74 growth rates (CSO). Analysis of Building Costs (All Schools) Cs C W1 -U U - luo. Cost Categories 0 0j UJ Room Units 1. In current prices ('000) 513 2,367 411 934 1,246 100 96 911 672 7,250 26 24 2. In fixed 1971 prices ('000) 378 2,325 353 877 1,170 96 90 870 629 6,788 - - 3. Construction area (new) (m 2) 4,000 30,700 4,550 9,100 14,300 1,110 1,000 8,900 8,540 82,200 - - 4. Cost per m2 in fixed prices (K) 95 76 78 96 82 88 90 98 74 (83) - - Toilets 1 (K'000) 103 428 153 280 402 101 192 300 249 2,208 8 7 2 (K'000) 76 419 132 263 385 97 175 287 220 2,054 .- - 3. (in) 570 3,300 1,200 1.900 2,760 770 1,430 1,870 2,040 15,840 - - 4. (K) 133 127 110 138 139 126, 122 145 108 (130) - - Staff Houses 1 (K'000) 280 1,000 285 1,309 1,664 250 477 1,086 487 6,836 25 22 2. (K'000) 206 820 245 1,229 1,565 222 443 959 407 6,096 - - 3 (M2) 1,320 5,550 1,815 6,220 10,200 1,360 2,120 6,250 3,140 37,975 - - 4 (K) 156 148 135 198 153 163 209 153 130 (171) - Remodelling 1. (K'000) 165 913 307 420 886 242 432 451 362 4,178 15 14 2. (K'000) 122 894 264 395 860 233 397 430 300 3,895 - - Site Works 1. (K'000) 340 1,345 463 1,028 1,476 365 605 1,036 456 7,123 26 23 2 (K'000) 251 1,322 398 965 1 406 355 555 989 386 6,627 - - Total 1. (K'000) 1,401 6,053 1,619 3,971 5,674 1,058 1,802 3,782 2,235 27,595 100 - 2 (K'000) 1,633 5,780 1,392 3,729 5,386 1,003 1,660 3,535 1,942 25,460 - - Water Supply 1 (K'000) 122 29 244 268 364 141 1,263 441 228 3,100 - 10 2. (K'000) 90 24 183 201 300 106 948 364 172 2,388 - - Grand Total M 1 (K'000) 1,523 6,082 1,863 4,239 6,038 1,199 3,065 4,223 2,463 30,695 - 100 2. (K'000) 1.123 5,804 1,575 3,930 5,686 1,109 2,608 3,899 2,114 27,848 - - Cost Summary School Extensions/Remodellings (K'000 Actual Costs) Cost Categories z z V) : a r 1. Building Costs (Budldings, Site work, remodellmng) . . . 1,121 3,844 795 1,728 2,703 808 1,325 1,088 1,748 15,160 2 Infrastructure (Staff Houses, Water Supply) ... 402 872 367 1,086 1,279 391 1,740 732 715 7,584 3. Furniture/Equipment 427 1,367 261 565 795 280 548 361 347 4,951 4. Planning and Administration (Professional Services) 250 826 191 451 661 199 407 292 407 3,684 5 Total Costs (Extensions) S w r . . . 2,200 6,909 1,614 3,830 5,438 1,678 4,020 2,473 3,217 31,379 Number of new students . ....... 1,160 6,270 720 1,610 5,438 750 1,3105027 3,27 11,680 _____________________ ____________________________________________ Numerof ewstuens................. 1160 6,70 20 1,60 ,20 70 131 88 1950 1168 Construction Cost Breakdown: New Secondary Schools 1- 0 a- Room Units 1. In current prices (K'000) . . 315,700 439,700 338,000 652,100 304,300 267,600 296,300 482,600 282,000 3,378,300 2. In fixed prices (K'000) . . . . . 296,400 412,800 322,800 622,800 297,500 267,600 285,200 452,600 242,500 3,200,200 3 Construction area m... . . . . . . 2,850 4,360 2,930 4,470 3,290 3,320 2,430 4,460 3,280 31,390 4. Cost per m2 (fixed prices) . . . . 104.0 95 110 139 90 81 117 101 74 (102) Toilets 1 . . . . . . . 33,100 69,500 31,500 69,400 33,700 17,900 36,200 68,300 41,200 400,800 2. . . . . . . . 31,100 65,300 30,100 66,300 32,900 17,900 34,800 64,100 35,400 377,900 3. . . . . . . 200 416 200 432 200 256 176 392 256 2,528 4 . . . . . . . 155 157 150 153 165 70 198 164 138 (149) Staff Houses 0% 1. . . . . . . 348,500 341,200 382,000 351,500 52,200 51,600 53,200 431,700 39,600 2,051,500 2 . . . 287,300 320,400 302,500 335,700 42,400 41,900 43,200 405,300 34,000 1,812,700 3 . . . . 2,480 2,090 2,480 2,400 306 306 306 2,720 306 13,394 4 . . . 116 153 130 140 139 137 141 149 111 (135) Site Works 1 . . 193,500 259,400 225,200 294,200 85,000 88,700 79,300 384,100 216,400 1,825,800 2 . . . . . 181,700 243,600 215,100 281,000 83,900 88,700 76,300 361,700 186,100 1,718,100 Sub-Total 1 . . . 890,800 1,109,800 976,700 1,367,200 475,200 425,800 465,000 1,366,700 579,200 7,656,400 2 . 796,500 1,042,100 870,500 1,305,800 456,700 416,100 439,500 1,283,700 498,800 7,109,800 Water Supply I e . 26,000 33,000 29,000 30,000 - - - 58,000 122,000 298.000 > 2 . 21,400 27,200 23,900 24,700 - - - 43,500 91,600 232,200 0 (,rand Total 1 . 1916,800 1,142,800 1,005,600 1,397,200 475,200 425,200 465,000 1,424,700 701,200 7,954,400 2 . . . 829,700 1.069,300 894,100 1,330,500 456,700 416,000 439,500 1,327,200 589,600 7,342,100 \wc The figures are based on a detailed bre;' n given by Norconsult Contract Co-ordinate -he figures differ somewhat from the Accounts (maximum - 5%) Analysis of Total Costs - New Secondaii, .tiools Actual costs ('000) Summaries ('000) Unit costs (K) 2,852 200 2,480 -3,234 - - 101 Kasama (BD) 810 316 33 194 349 26 109 153 543 375 1,180 683 463 135 1,457 4362 416 - 2,090 - - - 6,045 - - 102 Chmsah (GB) 620 440 70 254 341 33 124 199 764 374 1,461 1,232 603 200 2,356 2,830 200 - 2,480 - - - 3,234 - - - - - - 103 Chipata (MD) 810 338 32 225 382 29 97 162 595 411 1,265 735 507 120 1,562 4,470 432 - 2,400 - - - 6,318 - - - - - - 104 Nyinba (MB) 620 652 69 294 352 30 139 250 1,015 382 1,786 1,637 616 224 2,881 3,290 200 - 306 - - - 3,364 - - - - - - 105 Ndeke ( MD) 930 304 34 85 52 - 96 90 423 52 661 455 56 103 711 3,316 256 - 306 - - - 2,395 - - - - - - 106 Kabundi (MD) 930 268 69 89 52 - 93 86 375 52 606 403 56 100 652 2,426 176 - 306 - - - 2,616 - - - - - - 107 Lubuto (MD) 620 296 36 79 53 - 79 87 411 53 630 663 85 127 1,016 4,460 392 - 2,720 - - - 6,369 - - - - - - 108 Mansa (MB) 620 483 68 384 432 58 88 261 935 490 1,774 1,508 790 142 2,861 3,280 256 - 306 - - - 3.482 - - - - - - 109 Bwacha (MD) 930 282 41 216 40 122 91 112 539 162 904 580 174 97 972 31,386 2,528 - 13,394 - - - 37,057 - - - - - - Grand Tota! 6,890 3,379 401 1,820 2,053 298 916 1,400 5,600 2,35' 10,267 (813) (34i, (133> (1,490) Overall unit costs K/m2 108 159 - 153 - 163 - Appendix K Cost Estimates - Examples (mid-1976 prices) Example A: Cost estimate for a new secondary boarding school in North-Western Province (620 students) constructed by conventional methods. 1. Construction areas (gross): m2 1.1. Classrooms, etc. . ...........1,35 x 3,6 x 620 m' 3,010 1.2. Boarding facilities . . . . . . . . . . . 1,35 x 2,8 x 620 m2 2,440 1.3. Toilets . . . . . . . . . . . . . . . 1,35 x 0,6 x 620 m2 500 Total Area m2 5,950 2. Construction.costs: K 2.1. Classrooms: . . . . . . . . . . . . . . 3,010 m2 @ K135 x 1.14 463.200 2.2. Boarding: . . . . . . . . . . . . . . . 2,440 m2 @ K135 . 1.14 375.500 2.3. Toilets: . . . . . . . . . . . . . . . 500 m2 @ K200. 1.07 107.000 2.4. Site works . . . . . . . . . . . . . . (35% of 1+2+3) 331.000 2.5. Contingencies . . . . . . . . . . . . . (10% of 1+2+3+4) 127.300 Total Construction Costs K1,404.000 3. Furniture and equipment: 620 boarding school students @ K270 K167.400 4. Staff houses: K 2x321@K28.500: . . . . . . . . . . . . 57.000 16 x 312 @ K22.100: . . . . . . . . . . . . 353.600 9 x 311 @ K15.300: . . . . . . . . . . . . 137.700 13 x 202 @ K10.300: . . . . . . . . . . . . 133.900 (For priority A ancillary staff) Total (40 staff houses) K682.200 5. Cost summary: K 1. Construction of school ..................1,404.000 2. Furniture and equipment .................167.400 3. Staff housing . .............682.200 4. Fees and administration (15% of construction costs 1 + 3) . . . . . 309.800 Total development cost K2,563.400 - 164 - Example B: Cost estimate for a new day school on the line-of-rail (930 students), conventional design 1. Construction areas: m0 1.1. Classrooms 1,35 x 3.6 x 930 m2 . . . . . . . . . . . . . 4,520 1.2. Toilets 1,35 x 0.25 x 930 m2 . . . . . . . . . . . . . 310 Total Area m2 4,830 2. Construction costs: K 2.1. Classrooms: 4,520 m2 @ K135 . . . . . . . . . . . . . . 610,000 2.2. Toilets: 310 m' @ K200 . . . . . . . . . . . . . . . 62,000 2.3. Site works (20% of 1 + 2) . . . . . . . . . . . . . . . . . . . 134,000 2.4. Contingencies (10% of 1 + 2 + 3). . ........... . . . . 81,000 Construction costs K887,000 3. Furniture and equipment: 930 students @ K150 . . . ................... K139,500 4. Staff houses (if included): K 2 x 321 staff houses @ K24,500 ..................49,000 24 x 312 staff houses @ K19,000................. 456,000 12 x 311 staff houses @ K13,200................. 158,000 16 x 202 staff houses @ K8,900 .................. 142,400 (Priority A) Total (54 staff houses) K805,800 5. Cost summary: K 1. Construction costs......... . . . . . . . . . . . . . . 887,000 2. Furniture and equipment . . . . . . . . . . . . . . . . . . . 139,500 3. Fees and administration (15% of Item 1) . . . . . . . . . . . . . 127,500 Total costs excluding staff housing K1,154,000 4. Staff housing......... . . . . . . . . . . . . . . . . 805,800 5. Fees and administration (15% of item 4) . . . . . . . . . . . . . . 96,200 Total costs including staff housing K2,056,000 - 165 - Example C: Comparison of estimate examples A and B with existing schools 1. 620 students rural boarding schools: 102 Chinsali 104 Nyimba 108 Mansa Actual costs (K'000) . . . . . . 1,461 1,786 1.774 Fixed 1971 prices . . . . . . . 1,385 1,700 1,670 Inflated to 1976 level . . . . . . 2,270 2,790 2,740 The variations in location taken into consideration, the figures comply well with the example shown under A above. 2. Urban day school (930 students) excluding staff housing 105 Ndeke 106 Kabundi 109 Bwacha 1. Actual costs (K'000) . . . . 609 554 864 2. Fixed 1971 costs . . . . . . 590 554 758 3. Inflated to 1976 level . . . . 970 910 1,240 The estimated 1976 costs in the three schools differ from -7 to +25 per cent from the cost estimate example (B). The average of the three schools is 11 per cent lower than the cost example, indicating that the method of estimation gives results within acceptable deviation.  - 167 - ZAMBIA THE SECOND EDUCATION PROJECT LOAN 645-ZA COMPLETION REPORT June 30, 1979 (Revised April 30, 1982) Education Projects Division Eastern Africa Regional Office  - 169 - I. SUMMARY AND RECOMMENDATIONS 1.01 Background (a) The project was designed to assist an expansion of the Schools of Engineering and Education and to provide student hostels and staff houses of the University of Zambia in Lusaka. The Project was originally prepared in March 1968, as part of the First Education Project (Ln 592-ZA), but in the absence of a University Development Plan, was not included in that project. Following further preparation, the Project was appraised in May 1969, and the loan became effective May 5, 1970. (b) The postponement in project formulation may be attributed to delay in the preparation of the University Development Plan, and successive revisions of project components necessitated by the University's proceeding with imple- mentation of certain parts of the program even while the content of the project was under consideration by the Bank. 1.02 Project Objectives and Content (a) The Loan, in the amount of US$5.3 million equivalent, was intended to finance the estimated foreign exchange cost of the project, amounting to 72% of the total estimated project cost of US$7.4 million. (b) The Project included buildings, equipment and furniture for the expansion of the School of Engineering from an enrollment of 27 in 1969 to 360 by 1973, and the School of Education from 178 in 1969 to 670 by 1973. It also provided hostel accommodations for an additional 960 students, and eight staff houses. The Project was substantially completed by 1975 with consider- able savings (about US$1 million equivalent), mainly due to more economical' design of facilities. (c) In 1976 the Loan Agreement was amended to enable the financing of urgently needed laboratories, farm buildings, furniture and equipment, for the School of Agricultural Sciences and the Closing Date was extended to March 31, 1978. Although the School of Agricultural Sciences was to have been fully developed under the Third Education Project (Ln 900-ZA) the Govern- ment's indecision as to the location of the School, and the urgent need of agricultural science laboratories and demonstration farm facilities led to the Bank's approval of the request for immediate implementation. 1.03 Project Implementation (a) As stated in the Loan Agreement, the Project was implemented by a Project Unit established in the existing Office of the Resident Architect of the University. The Project Unit suffered from discontinuity of service of its staff and the lack of key staff; but the performance of consultant archi- tects was satisfactory and the main construction was accepted and handed over to the University in March, 1973. The facilities for agricultural sciences, added to the project in 1976, suffered delays resulting from rising prices, - 170 - shortage of materials and delivery problems due to general country difficul- ties in the mid-1970s. The procurement of instruction equipment was ultimately completed to the satisfaction of the users. However, delays were caused by cumbersome university procedures and losses, resulting in further delays, caused by the closing of certain ports of entry and by transportation diffi- culties. In later stages equipment purchases were delayed by indecision on the part of the School of Agricultural Sciences, lack of confidence of suppliers, as a result of country conditions and inefficient procurement aggravated by government procedures and by shortage of local funds. The procurement of furniture suffered from the same problems and furniture proved in many instances to be of poor design, and will need early replacement. A sixth extension of the Closing Date to September 30, 1979 was required to provide for the completion of the School of Agricultural Sciences component, which was added by an amendment to the Agreement in June, 1976. (b) Although a master plan for the development of the University was completed as called for in section 5.03 of the Loan agreement, the establish- ment of a University planning capability, one of the important objectives of the Project has not been achieved. However, an ad hoc Planning Team completed an important Report on the Long Term Development of the University of Zambia, in June 1977. In conjunction with that report the University Grants Committee of the University of Zambia examined the facilities of the Schools of Education and Engineering and found them appropriate. 1.04 Costs and Disbursements By December 31, 1975, the project was substantially complete. Expenditures by this date had reached about US$6.3 million equivalent, 85% of the estimated cost of the project, and about 80% of the proceeds of the Loan had been disbursed. Savings resulted mainly from the cost of civil works furniture and equipment. The project as amended in 1976 to include facilities for the School of Agricultural Sciences was completed and the proceeds of the Loan fully disbursed prior to the Closing Date, September 30, 1979. 1.05 Program Implementation (a) The University is effectively organized and administered, but the short term of office of the Deans of Schools is not conducive to strong man- agement. In addition, Deans are somewhat naturally disposed to favor the development of their particular specialization, leading to some imbalances. Buildings and equipment are fairly well maintained, and control of inventories is good, except for the School of Education, where control should be improved. (b) Manpower objectives of the Project have been only partially achieved. Enrollments in the Schools of Engineering and Education reached 170 and 690 respectively by 1978, about 47% and 103% respectively of 1973 targets estab- lished at the time of appraisal. Outputs in 1977 were 50% and 102% of targets for Engineering and Education respectively. Low enrollments and outputs are attributable to a shortage of good science-qualified candidates for admission to the University, too rigid and possibly unrealistic selection - 171 - by examination, and failure of the University to institute remedial science programs and thus reduce wastage. The lack of capacity of the School of Natural Sciences to meet expanding enrollments and program requirements has been an important contributing factor to the shortfall. Total university enrollments by 1977 had reached 3,000, only 60% of the 1973 target of 5,000, proposed at the time of appraisal in 1969. (c) The quality of graduates appears to have been maintained at the cost, in part, of high wastage, and low student:staff ratios. Standards of instruction have been commented upon favorably by external examiners. The qualifications of secondary school graduates entering the University should be improved; fewer than 50% of candidates in Engineering and Education programs ultimately graduate. The external 'productivity of the B.Ed. program is poor; of 600 graduates over the period 1970-77, only one-third were still teaching in 1978. This is a consequence, however, of an overall shortage of high level manpower resulting in,B.Ed. graduates being attracted away from the teaching profession to more prestigious and remunerative occupations. 1.06 Recommendations (a) The University should be encouraged to establish a Planning and Development Office and to initiate studies of the internal efficiency and external productivity of Engineering and Education degree programs. (b) The University should be encouraged to improve the facilities of the School of Natural Sciences, and simultaneously institute with the Ministry of Education, measures to improve the quality of science instruction in secondary schools. II. INTRODUCTION 2.01 The completion report on the Second Education Project in Zambia which comprised an expansion of the Schools of Agriculture, Education and Engineering of the University of Zambia, was based on, interalia, findings of a Bank mission which visited Zambia from July 19 to August 3, 1978. The mission visited the Schools of Agricultural Sciences, Education and Engineering, and the demonstration farm of the School of Agricultural Sciences. 2.02 The main tasks of the mission were: (a) to evaluate the performance of the project in the light of the objectives, assumptions and plans for implementation as established during appraisal, and formalized in the Loan Agreement and subsequent amendments; (b) to evaluate the extent to which the educational objectives of the project have been met; and - 172 - (c) to make recommendations for the effective utilization of the project institutions and for future operations in the sector. 2.03 The report is based on reports, correspondence and records available within the Bank, Ministries of the Government of Zambia, the University of Zambia and the Project Unit, and interviews with officials of the Ministries concerned. III. PROJECT BACKGROUND Socio-Economic Setting 3.01 The development of the project should be visualized against the background of the First National Development Plan 1968-72 (FNDP), following Independence in 1964. That period was characterized by a deep concern for nation-building through the development of broad social and economic infra- structure. In the field of education, the FNDP objectives included concern for an expansion of primary education to provide a base for development, the development of a secondary school in each District, and the establishment of technical education programs and a University. The FNDP also encouraged diversification of agriculture and industry, accompanied by a doubling of power and energy resources. Sector Setting 3.02 Manpower and productivity problems were formidable because of the high rate of population increase (17.3% from 1963 to 1969, or 2.7% annually) unprecedented urban drift (9% annually), low education levels of the labor force (in 1969 half of the African population five years of age or more had had no schooling), the critical shortage of trained manpower at all levels, and the slow growth of wage employment in comparison with population increase. The Zambianization of the labor force was an important economic and political issue, and in particular, the shortage of middle and high level manpower was reflected in the high proportion of expatriates filling key production and management positions in industry, government, and the profes- sions. Despite substantial achievement in the Zambianization of the labor force as a whole, middle and high level manpower shortages persisted. For example, as late as 1970, only one in ten secondary school teachers was Zambian. 3.03 The FNDP reflected concern that the country was economically vulner- able because of its dependence upon the copper industry which in 1969 produced 90% of total export earnings and 70% of Government revenues. The FNDP accord- ingly sought to diversify the economy through the development of agriculture and industry. Education development planning was directed at improving the supply of trained manpower by improving participation rates generally, and in particular increasing the supply of secondary school graduates as candidates - 173 - for further education and training. The shortage of qualified science teachers was the critical obstacle to the production of more secondary science graduates, the source of candidates in degree programs for professionals in the science-based occupations. Project Formulation 3.04 By 1966, two years after Zambia gained independence, the newly formed University of Zambia had enrolled its first intake of 204 students. In December 1965, the University made first approaches to the Bank for financial assistance. In February/March 1966, a Unesco/Bank identification mission visited Zambia and outlined an education project which included a University component estimated at US$6.4 million equivalent, comprising the School of Education (Stages I and II), the School of Natural Sciences, and student hostels. In December 1966, following further discussions with the Bank, and reconsideration of such factors as projected enrollments and equipment needs, a revised request for essentially the same components was submitted, at an estimated cost of US$10.9 million equivalent. In July 1967 the Bank requested an elaboration of this request, but the Government's extensive documentation was evidently lost in the mail, and in the meantime construction was proceed- ing on components for which Bank financing had originally been sought. In February/March 1968, a revised request was prepared with the assistance of Unesco, comprising Stage II expansions of the Schools of Engineering and Education, a School of Natural Sciences, and hostels for 960 places at an estimated cost of US$6.8 million equivalent. In May 1968, a Bank mission appraised a broader education project which was to include the above University components. However, in the absence of a University Development Plan, the University components were deleted in December 1968 from this project which then became the First Education Project under Loan 592-ZA, signed on April 11, 1969. In February 1969, following further preparation a new request for Bank financing of a University project, without the School of Natural Sciences, was submitted, and appraised in May 1969. The Loan was approved on November 18, 1969 and became effective on May 5, 1970 as the Second Education Project under Loan 645-ZA. 3.05 The unusually long time lapse between first approaches to the Bank and approval of the Loan for purposes of University development may be attributed to a number of factors including basically, the lack of a University Develop- ment Plan, delays in the processing of the preparation request, the unfortunate loss of documents in the mail, and several revisions of the project description necessitated by the fact that the Borrower proceeded with physical development even while the project was being identified, prepared and appraised. Project Description 3.06 The objective of the project was to help meet the high priority need of an improved supply of graduate engineers and secondary school teachers and to provide student hostels and staff houses to accommodate part of the steadily increasing enrollments and staff of the University of Zambia. The Project would provide for an increase of enrollments in the School of Engineering from 27 in 1969 to an intermediate target of 360 by 1973. It would assist - 174 - enrollments in the School of Education to rise from 178 in 1969 to 670 by 1973. The Project would provide hostel accommodations for 960 students, and eight staff houses. 3.07 The Loan in the amount of US$5.3 million equivalent was intended to meet the foreign exchange cost of the project amounting to 72% of the total estimated Project Cost of US$7.4 million equivalent. 3.08 By mutual agreement, an amendment to the Loan Agreement in 1976 provided for the financing out of savings from the Loan Account of urgently required facilities and equipment for the School of Agricultural Sciences. 1/ The expanded facilities would enable the School of Agricultural Sciences to enroll about 80 students. IV. PROJECT IMPLEMENTATION Project Management 4.01 The project was executed under the direction of a Project Unit estab- lished within the Office of the Resident Architect of the University of Zambia. Two architectural consulting firms were engaged to design the physical facil- ities and to supervise construction. 4.02 An architectural master plan of the University was prepared as set forth in the Agreement. 4.03 The project as originally approved, consisting of the construction and equipping of extensions to the Schools of Education and Engineering, and student hostels, had been satisfactorily completed with the exception of residual work and finalization of accounts by March 31, 1976 about 30 months after the original Closing Date, August 31, 1973. 4.04 The delays in implementation can be attributed to limited managerial capacity of civil works contractors, shortages of building materials, delays in furniture and equipment procurement, difficulties in transportation, short- age of foreign exchange to finalize procurement, and lack of key Project Unit staff. 4.05 In March 1976, the Government requested an amendment to the Loan agreement to utilize the anticipated savings of about US$1 million equivalent 1/ A new school of Agricultural Sciences was included in the third education project (Loan 900-2A), but was deleted due to a decision by the govern- ment to establish a separate agricultural campus. As an interim measure and to fully utilize savings in the loan proceeds, it was agreed to finance, inter alia, a science laboratories building to be used by the School of Agricultural Sciences until the new School of Agriculture was operational, which is likely to take about 10 years. - 175 - (mainly from the civil works, furniture and equipment categories) for addi- tional project-related items, and postponement of the Closing Date of March 31, 1976 by two years. The amendment was approved on June 7, 1976 and the Closing Date was extended to March 31, 1978 in order to allow sufficient time for the construction and equipping of additional facilities for the School of Agricultural Sciences. As a result of additional delays due to shortages of construction materials and the late procurement of equipment, the Closing Date was further postponed to September 30, 1979. Actual implementation of the Project as amended in 1976 took about nine years from the date of effec- tiveness. Project Implementation Unit 4.06 As stated under the Loan Agreement, the Borrower established a Project Unit within the Office of the Resident Architect of the University with assigned responsibility for the implementation of the Project. A Resident Architect was appointed and took over the functions of the Planning Office, a position established in 1964 to prepare a long term University Development Plan. Later a Planning Officer was provided by the Ford Foundation and subsequently a Zambian was appointed to this post. The Office is, how- ever, ineffective. In addition to the Resident Architect who also became the Director of the Project Unit, an estates bursar, an accountant, an equipment officer, and administrative and secretarial staff were appointed. The Unit has been continuously plagued by changes in key staff, and delays in the appointment of replacement staff throughout the project implementation period. The University has had difficulty in recruiting staff, but it is doubtful whether maximum effort has been made to fill these posts. The Project Unit's lack of key staff, and resulting management difficulties, have undoubtedly contributed to delays in project implementation. In August, 1974, the Bank agreed to the Borrower's request for approval of the appointment of Lusaka- based accounting consultants to maintain and finalize the accounts. Physical Implementation Sites 4.07 At the time of appraisal, suitable sites were available at the main campus of the University which comprises 660 acres of land, four miles from downtown Lusaka. This was also the case for agricultural science labora- tories which were added to the project in 1976. The University acquired full legal ownership of the demonstration farm only in May 1978, a covenant added when the loan was amended to include facilities for the School of Agricultural Sciences. Professional Services 4.08 Two architectural consultant firms were appointed by the University to design the project. The London-based firm which prepared an evaluation report for the physical development of the University in December 1968, was commissioned to prepare sketch plans and tender documents for the Schools of Engineering and Education, while a Lusaka based firm was requested to prepare - 176 - documents for the student hostels, common rooms and staff housing. The consultants were invited to design the buildings in January 1970 and design drawings were approved before the Loan became effective (May 1970). The consultant for the hostels also designed the new laboratory building for the School of Agricultural Sciences. The civil engineering works, such as roads, water and power supply and sewerage were commissioned to Lusaka-based consultant engineering firms (Annex 1). 4.09 Both architectural firms' work performance was generally satisfac- tory; however, in the initial stage of construction, the site supervisor for the consultants on the two Schools complained that construction contracts were awarded and work commenced on building sites before reasonably detailed work- ing drawings had been prepared. Revisions of original working drawings were first received in mid-1971, a delay which aggravated construction problems. Unresolved questions, such as arrangements for meeting the cost of the revi- sions arose with the result that work on the building sites almost ceased. The London-based consultants had difficulties in keeping their site super- visors in Zambia, and ultimately the Project Unit agreed to act on behalf of the firm. 4.10 Generally, the buildings are architecturally and functionally satis- factory. Teaching spaces, both in area and proportion for educational needs, are based on the appraisal mission's working papers. The preparation of site development, sketch plans and tender documents were completed between June and November 1970. 4.11 The original components have been in operation for about five years and the buildings provide year-round acceptable conditions of comfort in the teaching areas without the need of fans. Horizontal and vertical noise levels are acceptable. Landscaping for the project has been adequately carried out as have the requirements for drainage systems and service supplies (water, power and sewage disposal). Civil Works Contracts 4.12 The building industry in Zambia during the sixties was reportedly healthy and competitive. Escalating problems of the construction industry are now being reflected in the implementation of the most recently tendered project items. The building industry appears to be overloaded and there is little competition, with the result that prices-quoted by contractors have increased considerably. Contractors cannot rely on stable sources and prices of materials, difficulties arise in obtaining import licenses and establishing letters of credit, and securing transportation from the congested ocean ports. Contractors lack adequate working capital and an evident short- age of managers, engineers and skilled workers adversely affects the building industry. 4.13 International competitive bidding for the original project compo- nents was followed for all civil works; however, only contractors already working within Zambia applied for tender documents. Few bids for student hostels and sole bids for the Schools of Engineering and Education were - 177 - received by bid closing on September 1970 and March 1971 respectively. The bid unit cost per aquare meter were US$140 for student hostels, US$268 for the School of Engineering and US$276 for the School of Education. The bids for the two schools were not accepted by the consultants, but the University Building Committee recommended approval of all bids on the basis that they were high but acceptable and spaces were urgently needed. 4.14 The contract for student hostels, common rooms and staff housing was awarded October 1970 to the lowest bidder. Work commenced immediately, and was accepted as substantially complete between January and August 1973. The one-year delay in completion was mainly due to lack of essential building materials caused by a nationwide shortage of supplies (Annex 1). Good site supervision and contractor's management are reflected in the high standards produced. 4.15 Contracts for extensions to the Schools of Engineering and Education were awarded March 1971 and work commenced in April 1971. The successful con- tractor showed little activity in the initial stages of construction and there were major communication problems. The University after experiencing consider- able difficulty with incomplete and certain defective work, terminated the contract. The remaining work was completed on a cost plus basis by a Lusaka- based contractor. The construction work was conditionally accepted as "practically complete" in March 1973. 4.16 The bids for civil engineering work (roads, water and power supply and sewerage) were received in October 1970. The successful contractor's work performance was in the initial stage, satisfactory. However, in the last quarter of 1971 the contractor abandoned the building site; thus, the Univer- sity Building Committee decided to issue a notice of termination of contract. A contract was negotiated with the next lowest bidder, and the civil engineer- ing work was completed in March 1974 (Annex 1). The completion delay can be attributed to the difficulties with the first contractor. 4.17 Initial tender invitations in March 1976 for a laboratory building of the School of Agricultural Sciences elicited two bids, both of which were rejected because of high prices. Modified drawings were submitted in July 1976 for retendering, and from the three bids received, the lowest was ac- cepted, despite bid costs 52% higher than the estimate. Construction was commenced in November 1976 and proceeded satisfactorily, but due to transporta- tion problems and shortages of construction materials the building was com- pleted only by September 1978, after a ten-month delay (Annex 1). 4.18 Accounts of the original civil works contracts were finalized in October 1978 after long delays as a result of: (a) termination of two contractors' contracts, (b) delay in the completion of residual work, and (c) an inordinate delay by the consultants in issuing final certificates (June 1978). 4.19 The cost of original civil works in terms of US dollars amounted to US$4.8 million, a saving of about US$0.8 million, or 16%, in comparison with - 178 - appraisal estimates (including contingencies). The actual civil works cost of the final project including facilities for the School of Agricultural Sciences component added in 1976, amounted to US$5.3 million, a saving of about US$0.2 million, or 4%, compared with the appraisal estimate (para. 5.01). Procurement of Furniture 4.20 The master lists and tender documents for procurement of furniture for (a) student hostels and common rooms and (b) Schools of Engineering and Education were submitted for the Bank's approval in February 1971 and April 1972 respectively. The major part of all furniture was purchased in early 1974 of which 90% was received assembled and installed. The remainder was missing or damaged during shipment. Delays were experienced due to a dispute with the main furniture contractor regarding repair and/or replacement of items damaged in transhipment between ocean ports and Lusaka. The legal problem with the main furniture supplier was solved and damaged or missing items were replaced and installed by December 1974 at the University's ex- pense. However, difficulties were still experienced in the procurement of numerous miscellaneous items of furniture. 4.21 Furniture schedules for existing office building and the new laboratory building of the School of Agricultural Sciences were approved by the Bank in April 1976 and procurement and delivery were completed in April 1977 and February 1979 respectively. 4.22 The furniture was manufactured largely by foreign firms. The quality of moveable furniture, in particular delivered by the main supplier, is less than satisfactory (Annex 1). 4.23 The original furniture cost in terms of US dollars amounted to US$0.38 million, a saving of about US$0.14 million, or 38%, in comparison with appraisal estimates (including contingencies). The actual furniture cost of the final project including facilities for the School of Agricultural Sciences component amounted to US$0.42 million, a saving of about US$0.10 million, or 24%, compared with the appraisal estimates (para. 5.01). Procurement of Equipment 4.24 The equipping of the project components could have been a classic application of advance project planning as a means to expedite project imple- mentation. This did not prove to be the case. Although the University project component was proposed for financing in 1966, initial equipment lists were not made available for the Bank's review until February 1971, five years after the proposal, and two years after Loan Effectiveness. However, it is also noted that the lists were not approved by the Bank until May 1971, a delay of three months. Following the departure of the first Project Director in June 1971, the Bank reminded the University that the management of the project was deteriorating, and that equipment procurement processes were getting out of phase with the construction program. - 179 - 4.25 With particular respect to the School of Engineering the selection of equipment for Bank financing was complicated by the decision of the Govern- ment directing the University to procure some equipment from the USSR under a bilateral trade agreement. Accordingly, the identification of equipment available from the USSR became a prerequisite to the preparation of lists for Bank financing, with resulting delays. However, by August 1971 tenders invited on the initial lists and contracts had been awarded to 15 out of 73 tenderers. The initial response was good, and it appeared that equipment would be procured expeditiously within the Bank's procurement guidelines. By the end of 1974, about 15 months after the original Closing Date, expenditures for equipment had reached only US$243,978, about 72% of the appraisal estimate of $338,358, including contingencies. Procurement of engineering equipment was concluded when expenditures had reached 75% of the appraisal estimate, and the Dean of Engineering stated that the equipment requirements of the School had been met. 4.26 Also the preparation of equipment lists for the School of Education fell behind schedule; because of the rotation of faculty, overall planning and the implementation of a development plan for the School was seriously delayed. Furthermore, although the expanded facilities were to have been equipped extensively from external sources, of which UNDP/Unesco was expected to be the major source, the lack of communication and coordination among the external agencies and the Project Unit caused further delays. Following the completion and hand-over of the facilities in 1973, it appeared that the School of Education was not ready to use facilities planned for mass media, crafts and music. Despite repeated reminders from the Project Unit to the Dean that equipment lists were overdue, they were not provided, and some instructional areas originally intended to be equipped under the project, were ultimately equipped from other sources. 4.27 The University, without consulting the Bank, made available to other entities of the University, facilities which had been financed as part of a planned expansion of the School of Education. The University Computer Center, very much in need of expanded facilities, took over the television studio, which was not being utilized for the purpose intended and was actually no longer needed for TV production; the Department of Correspondence Studies, a fast growing service took over classrooms and offices; and the Manpower Research Unit took over the crafts and music centers. 4.28 Apart from scheduling problems resulting from over-utilization of classrooms, the educational program seems not to have suffered seriously from the loss of facilities. As an indirect benefit, nearly one half of the University's correspondence students numbering over 600 are in the School of Education programs. In other respects, equipment for the education component was procured at a cost of about US$76,000 equivalent as compared with estimated costs of US$79,000 equivalent including contingencies. Equipment procured under the project appears to have been satisfactorily reconciled with that provided by UNDP/ Unesco, and appears to have been well chosen to provide printing equipment for curriculum development, visual aids for general use, and closed circuit television equipment for micro-teaching techniques. - 180 - 4.29 The procurement of equipment proved to be one of the difficult aspects of implementation, but delays were attributed by the Project Unit mainly to Zambia's special problems in international trade, and to complicated government procedures and poor management. Unreasonable delays occurred at each step in the procurement process. In many cases tenders were incomplete, and much correspondence was required to elicit bids on particular items of equipment. The situation was aggravated by the fact that original accounts were kept by University and lost in the maze of other accounts until a con- sultant accountant was hired. He in turn had difficulty in maintaining competent staff, with resulting staff turn-over, lack of continuity, and high cost of operation. Following closure of the Rhodesian border in February 1973, suppliers found it difficult to deliver goods to Zambia. The use of alternative ports of destination such as Lobito, Beira (also later closed) and Dar es Salaam caused delays from loss and misdirection of documents and of equipment. It has not been possible to determine whether all insurance claims were settled by the Bursar's office. 4.30 All expenditures were processed through the.understaffed office of the Bursar, which controlled the appropriations of the Project Unit. The Ministry of Commerce was not efficient in processing applications for import licenses, and the Ministry of Finance frustrated the efforts of the Project Unit to use Procedure III 1/ to facilitate procurement from external sources by insisting upon procurement in the first instance through the basic appro- priations. Accordingly, when shortages of local funds occurred, procurement stopped, and Procedure III for direct payment provided little relief. Follow- ing approval of the master equipment lists, considerable delay resulted when the School of Agricultural Sciences was unable to produce equipment specifica- tions for tendering purposes. However, tendering and procurement proceeded uneventfully, and procurement was closed by December 31, 1978. The progress of procurement of equipment for the Schools of Engineering, Education, and Agricultural Sciences is shown in Annex 1. 4.31 The original equipment cost in terms of US dollars amounted to US$0.48 million, a saving of about US$0.11 million, or 23%, in comparison with appraisal estimates (including contingencies). The actual equipment cost of the final project including facilities for the School of Agricultural Sciences component amounted to US$0.98 million, an increase of about US$0.39 million, or 66%, compared with the appraisal estimate (para. 5.01). Fulfillment of the Covenants of the Agreement 4.32 The Borrower's action in the fulfillment of the general and parti- cular covenants of the Loan Agreement has been somewhat uneven. The covenants, in retrospect, appear to be reasonable and needed for the successful implemen- tation of the project, and in the general interest of the Borrower. 4.33 The covenants which require the renewed interest and effort of the Borrower include the following: 1/ Procedure where borrower may request Bank to make direct payment to a supplier on the borrower's behalf. - 181 - Section 3.03. "Except as the Bank shall otherwise agree, the Borrower shall cause all goods and services financed out of the proceeds of the Loan to be used exclusively in carrying out the Project." In three instances, without prior consultation with the Bank as stipulated, the Univer- sity used facilities for other than project purposes. Reference is made to the use of education facilities for the Manpower Research Unit, the Depart- ment of Correspondence Studies and the Computer Center. Section 5.02a. "The Borrower shall establish adequate planning procedures within the University, and for this purpose appoint a qualified planning officer." For various reasons including the difficulty of creating and funding a position, and subsequent difficulty in recruiting a qualified candidate, the University has not established "adequate planning procedures" a flexible wording of the covenant evidently intended to provide incentives for the University's improvement of planning procedures without being pres- criptive. In any event, for the lack of a qualified planning officer, planning procedures were not sufficiently developed for discussion with the Bank. The present incumbent of the Planning Officer position is in fact a facilities utilization officer whose primary responsibility is the allocation of instructional spaces to competing faculties, in response to program needs. Evidence of planning deficiencies is not hard to find. Although planning has admittedly been complicated by recent shortages of capital development funds, it is probable that the expanding requirements of the Computer Unit, the Manpower Research Unit and the Department of Correspondence Studies could have been foreseen by an experienced planning officer. Section 5.02(b). The University established the Project Unit as specified, but has had considerable 'difficulty in maintaining the continuity of staff, with particular reference to the staff responsible for the pro- curement of equipment, and accounting. These deficiencies undoubtedly con- tributed to the management problems which resulted in delays in the completion of the project and in the unsatisfactory response of the Project to the equip- ment requirements of the School of Education. Section 5.03. "The Borrower shall before November 1971 prepare an Architectural Master Plan of the University covering all elements of the development of the campus appropriate for an enrollment of 5,000 students". Unfortunately, the Educational Planning Officer has not yet been appointed, and the detailed space utilization Plan has not been prepared. However, in retrospect the assumption of a student body of 5,000 on the main campus within a ten-year development period was over-ambitious. In 1977, the Government decided that the University should be developed on a federal basis at three campuses. This decision obviously will have important implications for the development of the Lusaka campus, and for the ultimate utilization of Bank- financed facilities for the Schools of Agricultural Sciences, Education and Engineering. The Bank's request for this covenant was a realistic attempt to induce the University seriously to establish a planning capability. - 182 - 4.34 By a letter dated June 7, 1976, the Bank informed the Borrower of a Loan Agreement amendment postponing the Closing Date, and including the finan- cing of additional facilities for the School of Agricultural Sciences on the Lusaka Campus and Demonstration Farm. The amendment necessitated a further covenant to the effect that no withdrawal from the Loan Account would be made on account of expenditures for Liempe Farm until the University had acquired full legal ownership of the land. The covenant was fulfilled and acknowledged by the Bank on June 29, 1978. 4.35 Section 5.08 of the Loan Agreement refers to the maintenance of buildings. The buildings in the original project have been used for about five years. During this period they have weathered well and while there are at present no serious defects, there are day-to-day maintenance problems. The University's maintenance section and repair staff carry out all maintenance work. The section receives an annual budget of ZK 80,000, about US$0.1 million equivalent, (the same amount as has been allocated since 1965) or about 0.5% of total building assets. The budget covers all maintenance expenses such as materials and wages for the staff. Because of lack of sufficient funds, day-to-day maintenance is lacking, even glazing and paint work. According to information given by the Resident Engineer (head of the maintenance section) it will with the present budget be'impossible to carry out any major repair work such as water, power and sewerage services and roof leaks, and similar items which the maintenance section expects will soon require a thorough overhaul. The completion mission found the day-to-day maintenance of buildings and moveable furniture somewhat less than satisfac- tory, but the campus kept in general good condition, with landscaping in a reasonable state. V. PROJECT COSTS AND FINANCING Capital Cost 5.01 The project cost at appraisal was estimated at US$7.4 million equiva- lent. The loan in the amount of US$5.3 million covered foreign exchange costs estimated at 72% of total project costs. The following table compares estimated and actual cost of the project by category. - 183 - Estimated and Actual Project Cost in US$ (million) Actual Cost of Cost of Appraisal Original Plan Additional Final Actual Cost Category Estimate /1 Total % Diff Components Total % Diff I. Civil Works/2 5.56 4.77 -14% 0.56 5.33 -4% II. Professional 0.71 0.69 -3% 0.09 0.78 +10% /5 Services III. Furniture 0.52 0.38 -27% 0.04 0.42 -19% IV. Equipment 0.59 0.48 -19% 0.50 0.98 +66% Total in US$ m. 7.38 /3 6.32 -14% 1.19 7.51 + 2% and in ZK m. 5.27 /4 4.49 -14% 0.95 5.44 + 2% /1 Includes contingencies. 7-2 Includes site development. /3 Taxes, insurance, delivery and installation of equipment are included. 7_4 Exchange rate at appraisal US$1.0 = ZK 0.714. T5 The increase of the cost of professional services is attributed to extended construction period. Source: Project Unit. 5.02 The total cost of the original project including contingencies was 14Z below appraisal estimates, with an expected saving of about US$1.0 million mainly due to more economical design of facilities. In March 1976 the Govern- ment requested an amendment to the Loan Agreement to use these savings for additions to the Project. The Bank approved the amendment in June 1976 utilizing the estimated savings for the construction and equipping of,a science laboratory building at the main University Campus and farm machinery sheds at the Liempe demonstration farm for the School of Agricultural Sciences. The additional facilities increased the final total Project cost by 2% over appraisal estimates, with the greatest relative cost increase originating in the equipment category. This was due mainly to the high cost of farm machinery. The most significant saving in the initial project occurred in the civil works category. Total project costs by components are given in Annex 2. Unit Space Allocation and Cost per Student 5.03 The unit areas and costs per student place are given in Annex 3. There were only slight differences between planned and actual areas per student place, but nevertheless savings were achieved. - 184 - Disbursements 5.04 Actual disbursements were slow, particularly in the first three years, in relation to the original schedule, due to delays in the initial project implementation stage caused by, inter alia, building material short- ages and limited managerial capacity of certain contractors and the inability of the Universities to separate accounts and obtain proper documents for equipment expenditures. All funds (US$5.3 million) were disbursed and accounts closed by September 30, 1979 final Closing Date. The record of disbursements, and table and graph comparing estimated and actual disbursements, appear as Annexes 1 and 4. VI. PROJECT OPERATING OUTCOMES Manpower Development 6.01 The University of Zambia legally came into being on November 12, 1965; the foundation stone was laid on July 12, 1966 and 204 students were enrolled in the same year, using temporary facilities. From a University comprising four Schools (Humanities and Social Sciences, Natural Sciences, Education and Law) with an enrollment of fewer than 300, by 1978 the Univer- sity had enrolled 3,000 in nine Schools. The planned ceiling of 5,000 students was expected to be reached by the mid-seventies, and accordingly, by the final Closing Date, September 30, 1979 the development program appeared to have reached about 60% of its 1975 target. The University does not regard the shortfall as a failure, rather than the original target was over-optimistic and could not have been achieved, in line with orderly growth and reasonable cost. 6.02 The Zambianization of the labor force, and in particular the high level manpower such as the teaching staff of major educational institutions has been, since Independence, one of the primary objectives of education in the country. In 1969 the University established the University Staff De- velopment Plan to promote the Zambianization of academic and non-academic staff. The plan established counselling services for persons wishing to assume appointments appropriate to their qualifications, and selected can- didates suitable for further training abroad with a view to their returning to the teaching staff of the University. In 1974, only 14% of the academic/ administrative staff of the University were Zambians. Estimates place cur- rent Zambianization of the faculty at about 16%, a comparatively small im- provement over the intervening period. This compares with the Zambianization of the engineering and high level technical skills level of the labor force as a whole, about 60% in 1977 (Annex 5). An estimated 30 prospective staff members are presently pursuing further education abroad under the University Staff Development Plan. Paradoxically, the more successful the Zambianiza- tion program, the higher the operating costs of the University because the services of the majority of expatriate staff are provided on a grant aid - 185 - basis. Obviously, the Zambianization of the high level labor force will be protracted. The progressive Zambianization of the labor force over the per- iod in three categories by educational background is shown at Annex 6. 6.03 During appraisal Government projections of high level manpower in- dicated by 1980 a total need of 12,545 degree-level personnel including 1,800 engineers, and 3,800 teachers. The appraisal mission used more cautious pro- jections of 10,000 graduates, of whom 1,500 should be engineers and 3,000 teachers. It should be noted that these projections were made before the opening of the School of Mines in 1973 with five-year degree programs in Geology, Metallurgy and Mineral Processing, and Mining Engineering, and a capacity of 250 students. Assuming a 50% pass rate, the School may be ex- pected to graduate about 10 engineers annually and the space vacated by mining engineering enrollments represents additional capacity for the other engineer- ing disciplines in the School of Engineering. 6.04 According to the 1978 projections of the TNDP (Third National Development Plan), total demand for graduates will reach 7,400 by 1980 (or 25% less than the appraisal projections) and 8,000 by 1983. The same source estimated demand for engineers/technologists at 2,200 by 1980 and 2,400 by 1983. Similarly, demand for secondary teachers and primary and secondary teacher trainers were estimated at 4,100 by 1980 and 4,600 by 1983, one- third increase over 1969 estimates. 6.05 The School of Engineering enrollments combined with one third (i.e. the engineering component) of School of Mines enrollments rose from 122 in 1974-75 to 180 by 1977-78 (Annex 7). The combined schools achieved about 50% of appraisal target enrollments. The average annual output was 32, about 40% of the appraisal target. Assuming the TNDP estimate that in 1975 the stock of engineers was 2,450, the new stock by 1980 would reach 2,610, an excess of 400 over the estimated demand of 2,200. However, at even minimum attrition rates, outputs combined with graduates abroad would barely keep pace with demand, and the outlook for reducing the high proportion of expatriates, (27%) of this component of the high level manpower is uncertain. It is clear that the appraisal estimates of enrollment requirements were reason- able, and renewed efforts should be made to achieve them. The essential re- quirements would be the availability of qualified secondary school science graduates, reduction of failure rates through remedial teaching, and the maintenance of a good instructional environment through the availability of qualified teaching staff and adequate operational budgets. 6.06 The School of Education was expected to raise enrollments (178) and outputs (40) in 1969 to 670 and 150 respectively by 1973. By 1978, enroll- ments had reached 600, or 689 including full-time equivalent correspondence students, slightly exceeding the projection for 1973. It is reasonable to include the proportion of full-time equivalent correspondence teachers enrolled in education programs because the project facilities intended for the School of Education are being used in part by the Correspondence Studies Department. Outputs are estimated at 145 annually, approximating the appraisal target for 1973. The 1973 enrollment and output targets of the School of Education accordingly are being met. (Annex 7). - 186 - 6.07 A recent study of the comparative persistence in the profession of teachers holding either graduate or diploma qualifications, reveals a serious factor in the attrition of qualified teachers from the available stock. Over the period 1970-77, the persistence in teaching of graduate teachers was com- pared with that of diploma graduates of Nkrumah Teachers College, in both in- stances for Zambian teachers only. The evidence is that of 1,000 diploma teachers who qualified in the years 1970-77, 90 percent entered teaching. By 1978, 70 percent of those who qualified were still teaching. During the same period, only 58 percent of the 600 students who qualified as graduate teachers entered the profession, and by 1978, only 33 percent of those who were quali- fied were still teaching. In other words, attrition amongst degree teachers from UNZA was twice that of diploma teachers from Nkrumah College. The study is incomplete, but one possible conclusion is that the higher employment aspirations of university graduates leads them in substantial numbers to leave the profession for more attractive positions. In fact, there continues to be a major shortage of high level manpower throughout the economy. There is con- siderable, albeit undocumented, evidence that ex-teachers make an important indirect contribution to the nation's development, possibly to a degree which compensates for the cost of their training. However, the loss of graduate teachers from the education system is serious, and the external efficiency of the School of Education is correspondingly low. (Annex 8) Organization and Administration 6.08 The University is organized and administered along conventional lines. A Senate formulates policy which is administered by the University Council of Deans, organized into committees responsible for such functions as academic and student affairs, planning, budgets, and staff development. The appraisal mission found the organization and administration of the Uni- versity satisfactory with the exception that the project request reflected a lack of long term planning capabilities. Accordingly, the Bank requested by covenant, the appointment of a Planning Officer to complement, for academic affairs, the Office of the Resident Architect, which is concerned primarily with the physical plant. Regrettably, annual reports of the University have not been available for the past two years. Development Plan 6.09 According to the appraisal mission, the original proposal suffered from lack of a physical development plan based upon academic requirements; an over-provision of space based upon an actual analysis and projected enroll- ments; lack of larger teaching areas for basic, combined courses; and uneco- nomical designs. The appraisal mission recommended the immediate appointment of a university planner in order to expedite the preparation of a development plan as part of the description of the project. Following an unsuccessful search for a planner, in 1968 the University appointed a London-based consult- ant architectural firm to evaluate the existing buildings, and development plan, and to outline future physical growth requirement incorporating the existing physical installations. Although the report was not a composite academic and physical development plan, it was a sufficient basis for appraisal of the project. - 187 - 6.10 From 1971 to 1974 an expatriate Planning Officer served under a foundation grant; a Zambian planning officer succeeded him, but room schedul- ing duties were such that he could not devote the necessary time to identify- ing and obtaining concensus on the priority needs of a developing academic program as a basis for a long term physical development plan. As a general comment for planning purposes, it is apparent that the Resident Architect does not have the benefit of consultation with a Planning Officer who would have the responsibility of identifying the space requirement for developing programs required for translation by the Resident Architect into site and physical facilities plans. The covenant was needed and has been justified by the course of events. It should be reviewed with the Government over the remaining life of the project and post-completion supervision. In 1975, the Government decided to develop a federal university with three constituent institutions, and an ad hoc planning team was commissioned to produce a de- velopment plan. The Report on the Long Term Development of the University of Zambia was published in June 1977. 6.11 The production of the Report on the Long Term Development of the University is a significant development. However, the work of an ad hoc committee of this nature does not substitute for the process of continuous planning, the apparent lack of which has been responsible at least in part, for several gaps in the development of the University. Amongst the most important of these, it is to be noted that despite the Government's acknow- ledgement of the neglect of the agriculture sector, and the urgent need to provide leadership through professional training in agriculture, the School of Agricultural Sciences was not established until 1971, and still lacks a permanent base. A well-advanced plan to develop the Natural Resources Development College at Lusaka into the School of Agricultural Sciences has been reversed by Government, resulting in an emergency request for the use of the balance of funds in the Second Education Project to provide laboratory facilities at the Lusaka campus and buildings and equipment for the demonstra- tion farm. The laboratories are to be used on a temporary basis by the School of Agricultural Science. When the School is relocated to a separate campus these facilities will be used by the University for teaching of Science. Furthermore, the shortage of places in the School of Natural Sciences, which services the science-based Schools of the University is the most obvious obstacle to the progressive expansion of the university as it strives to meet the high-level manpower needs of the country. An effective planning body within the university would have identified this prospective bottleneck before the reality. Similarly, the space requirements of the Manpower Research Unit, the Department of Correspondence Studies, and the Computer Center, should have been anticipated, and not abstracted from facilities designed and provided for the School of Education. Finally, in 1978, the University experienced no growth despite continuing high-level manpower shortages because boarding capacity had been fully utilized, and plans had not materialized for the expansion of day enrollments. 6.12 The planning deficiency is further shown in the lack of effec- tive planning of facilities for student activities. A temporary building - 188 - formerly available to the student association as a center for social acti- vities has been taken over by the University's administration. The hostel development plan provided a common room for each cluster of hostels, known as a "House" intended to provide the student body with smaller group identi- fied for purposes of athletic and other competitions and social events. The common room concept has not been successful and the buildings will quickly become derelict unless alternative plans are developed. A representative planning body including the Dean of Students and a representative of the student association could have found a forum for their views on the problem of student activities, the failure of the common room concept, and an agreed future course of action. 6.13 As an example of effective forward planning by the University, men- tion should be made of the development of the TDAU (Technology Development and Advisory Unit), established in 1975 to provide, in part, a development center for new equipment and processes. The Center, associated with the School of Engineering is providing useful services, mainly to agriculture, but also to industry, and the planning objective is a central technical development and advisory service for all sectors. The management of the Unit also places demands upon the time of the School of Engineering. 6.14 The University should have been invited to review its own planning process since 1970 with a view to identifying critical points of developing planning, and an appropriate structure of a Planning and Development Office. The Office should be established at a level sufficient to give it required authority. In this respect, the Loan Agreement did not achieve its intended objective of encouraging the establishment of a coordinated planning and development authority within the University. Facilities Utilization 6.15 Utilization of classrooms and general laboratories of the School of Engineering and the School of Education vary between 60 and 90% as deter- mined by an examination of timetables. Utilization of the heavy laboratories is also satisfactory at 40% to 70%, but it is apparent that the civil engi- neering laboratory which is equipped for experimental tests of the strength of materials and of structures is not used as intended. Ad hoc adjustments have been made, and some space is being used for instruction in other fields of engineering. The University should conduct a review of civil and possibly mechanical engineering programs to discover the reason for the discrepancy bet- ween equipment requirements as established at appraisal and present utiliza- tion, and corrective action if any, to be taken. 6.16 The project provided for an expansion of the School of Engineering enrollments of 27 in 1969 to an intermediate target of 360 in 1973. No estimate of the distribution according to the four fields of civil, mechanical, electrical and mining engineering was made, and it was assumed that enrollments among the engineering disciplines would be adjusted according to subsectoral needs. The development of the School of Mines with (SIDA) Swedish International Development Association assistance markedly reduced the student load in the - 189 - School of Engineering, and in fact by academic year 1977-78, the School of Mines had enrolled 69 students, representing 20% of planned capacity of the School. This intervention will involve adjustments in order to improve the efficiency of operation. At the present time 144 students in three engineer- ing disciplines, comprise unacceptably low class sizes even though the first three years have common programs. Under the circumstances, the Senate's re- cent decision to permit a fourth specialization in electronics engineering may be difficult to justify. It is probable, however, that the realities of reduced operational budgets may impose reconsideration. 6.17 At the time of appraisal in 1969, the University had been in opera- tion for only three years, but had enrolled about 1,000 students and engaged faculty numbering 169. The appraisal team noted that the student-staff ratio at 6:1 was low, but not unreasonable considering the development problems of a new university. It also suggested that a minimum target of 10:1 should be obtainable by the early 1970's. 6.18 By 1978, enrollments had risen to about 2,980 in eight Schools and the Center for Continuing Studies, with a faculty numbering 300 and an average student-staff ratio of 10:1. This appears to be consistent with the appraisal estimate, but examination of the data reveals that unacceptably low student- staff ratios in the Schools of Agricultural Sciences (3:1), Engineering (7:1), Medicine (5:1), and Mining (5:1), are concealed in the average figure. (Annex 9). 6.19 The data suggest that there are imbalances in the teaching loads of professors, and that a detailed analysis and review would be useful in the interest of more equitable staff utilization and possibly space utilization. For example, under the existing low student-staff ratios of the School of Engineering, it may be questioned whether the proposed provision of a spe- cialization in electronics engineering at the 4th and 5th years, should be implemented. It would also be useful to study the impact of correspondence studies on the work-load of teaching staff, in view of the fact that cor- respondence courses are supervised by the professorial staff of the respec- tive schools of the University. It is probable that such teaching is much more demanding of staff time than classroom teaching. Moreover, it should be noted that in 1977-78, 41% of full-time-equivalent correspondence students were enrolled in the School of Education, possibly creating a workload exceed- ing the apparent workload indicated by a student-staff ratio of 9:1. 6.20 A study of the wastage from amongst students enrolled over the past six years provides one measure of the internal efficiency of the University. The wastage from the common first-year program of the School of Natural Sciences varied from 20-25%. The comparable figure for the School of Humani- ties and Social Sciences was 15%. By the end of the ensuring four years the wastage expressed as a percentage of those admitted to the second year of degree programs was as follows: - 190 - Degree Program Wastage % Degree Program Wastage % B.Sc. Natural Sciences 48 B.A. Humanities 19 B.Sc. Education 39 B.A. Education 28 B.Sc. Agriculture 17 LLB. Law 25 B.Sc. Engineering 40 MB.ChB Medicine 2 B.Sc. Human Biology 8 In other words of a hypothetical 100 students registered in the five-year B.Sc. Engineering program, only 48 would ultimately graduate, assuming the lower wastage rate of 20% from the common first-year program. The corresponding figure for potential science teachers in the B.Sc. in Education Degree program would be 49. 6.21 The University is aware of the unacceptably high cost of such wastage rates, and under the pressure to Zambianize high-level occupations has under consideration proposals to improve the situation. The University blames primarily the poor quality of science matriculants from the secondary school, but ack--wledges also its own role in producing the teachers required for a high quality secondary school program. Constraints on secondary school teachers' salary scales adversely affect the attractiveness of teaching as a career, and render teaching less competitive for available high level manpower. Declining budgets for instructional materials aggravated by the theft of equipment and materials from schools also have their effect. Moreover, the declining operational budget of the University and overcrowding especially in the School of Natural Sciences, tend to steepen the downward spiral of the quality of science instruction in the country. 6.22 Nevertheless, positive developments are underway or in prospect. The First and Third Education Projects (Loan 592-ZA and 900-ZA) are assist- ing science instruction in secondary schools through improved facilities with wider accessibility to students, and there is a general appreciation of the essentiality of secondary science programs to service the nation's agricul- tural and secondary industries. Furthermore, the University is reviewing its selection procedures to ensure that entrance examinations are realistic and relevant to the background experience of students, and the requirements of the University. The University is also considering the introduction of intersessional programs to plug the gaps in the qualifications of potential candidates and remedial programs to upgrade and standardize the science experience of candidates. The University is aware of the need to improve facilities and budgets of the School of Natural Sciences but external encouragement and support are needed. UNZA Recurrent and Capital Budgets and Estimates. 6.23 In the face of rising costs and declining revenues the Government has taken extraordinary measures to maintain the levels of University capital development votes, albeit mainly from external sources, and recurrent budgets from local sources. In 1968, capital expenditures reached $5.1 million equivalent, which dropped in 1974 to $1.5 million equivalent following the - 191 - oil crisis in 1973, recovered to $4.4 million equivalent, and $5.0 million equivalent in 1976 and 1977. Capital development needs in 1978 and 1979 are estimated at $2.8 and $7.0 million equivalent respectively. The table below gives expenditures estimated on capital and recurrent accounts in ZK. 1/ 2/ Account 1974 1975 1976 1977 1978- 1979- Capital 1,080 3,170 3,842 3,570 2,000 5,000 Recurrent 6,400 5,866 8,640 9,000 9,600 12,000 1/ Estimates. 2/ Requested by the University of Zambia. Source: Government of Zambia (August 1978). The large increase for 1979 anticipates the development of a new University campus on a rural site for the Schools of Agricultural Sciences, Forestry, and Veterinary Sciences. However, it appears unlikely that this development will take place in the foreseeable future, because, even assuming external development assistance can be found, the recurrent costs thus generated may not be affordable. 6.24 Per capita annual recurrent.expenditure have 'remained constant at about Kw 3,200. It is anticipated that Government grants will not meet the recurrent budget for 1978 onward and the University accordingly has under consideration plans to increase revenue through higher fees, and to introduce charges for board and room. As noted elsewhere in this report, reduced budgets are already having an impact upon the quality of education as equip- ment becomes unserviceable for the lack of funds for spares,'and as expendable instructional materials become unavailable. Altogether, Zambia is making a commendable effort to maintain standards of performance of the University and to maintain buildings and equipment, although deterioration is becoming evident. VII. BANK'S PERFORMANCE Project Cycle 7.01 The identification, preparation and appraisal stages of the project were protracted, extending as they did over the period from December, 1965 when the proposal was first broached to the Bank by the Vice Chancellor, to Loan Signing on November 20, 1969. A UNESCO/Bank Identification mission visited Zambia in February/March, 1966, and at the same time in response to - 192 - a draft Project request from the University, a project officer of the Bank visited the University. The report of the identification mission entitled, "Educational Priority Projects for Development" recommended cost reduction in the University's request, consistent with functional requirements. These points were reviewed in Washington by the Vice Chancellor, followed by a Bank mission in December 1966, when further information requirements of the Bank with respect to programs and project requirements were discussed. In the meantime, the University, under pressure to expand, proceeded with some of the project items even as they were being discussed for appraisal by the Bank. Early in 1968, the Government's interest in Bank assistance was reactivated, and a UNESCO preparation mission visited Zambia in February/ March, 1968 followed by an appraisal mission in May 1968. The Project was originally a part of the First Education Project (Loan 592-ZA) but in the absence of a University Development Plan, was not included in that project. Following further preparation, the Project was finally appraised on May, 1969 and the Loan became effective May 5, 1970. 7.02 There would be little point in attempting to assess the responsi- bility for the long period of project gestation. The University was under direction to expand quickly in response to urgent development needs. Accordingly, it proceeded with the development of facilities with Government and external funding, without full understanding of the meticulous planning and implementation procedures of the Bank. For its part, the Bank was legitimately concerned to assure its management that project lending was based upon sound planning. In retrospect, this concern has been justified, since at this time, nine years later, planning problems of the University are identified as the most serious deficiency in the University's management. Bank Group Implementation Assistance 7.03 During the nine years that have elapsed since loan signing, the project has been supervised by 19 missions for a total of some 50 man/weeks in the field, excluding travel days and the Completion Mission. Most missions were organized in conjunction with reviews of the other education projects in Zambia. Although supervision was adequate in terms of number of days spent in Zambia, timing was not always related to the critical stages of project implementation. On occasion, particularly in initial implementation stages, there were long periods without the Bank's presence, and frequently with new staff. In overall terms, however, this did not cause delay in physical execution performance. The intervals between missions ranged from three to eight months and averaged five months; percentage of time on mission by educators, economists and architects was 46%, 19% and 35% respectively. VIII. CONCLUSIONS 8.01 The Project as originally conceived, and subsequently amended, has been satisfactorily completed (within estimated costs) despite serious diffi- culties resulting from the socio-economic problems of the country, e.g., the dislocation of international trade, and declining Government revenues in the country during part of the project implementation period. - 193 - 8.02 The project-assisted facilities are being effectively utilized although, in the case of the School of Engineering, not to full capacity. Some project facilities are being used for the general benefit of the University, and not specifically for the School of Education. The buildings and equipment are generally of good standard, obtained at reasonable cost. The furniture was of poorer quality. The facilities are being fairly well maintained, but programs are suffering from the lack of recurrent budget to provide for building maintenance, procurement of spare parts, replacement equipment and expendable materials. 8.03 The planning capability which the Project promoted has not been fully developed. This deficiency is the most serious single weakness in the management of the University. 8.04 The efficiency and productivity of the Schools of Education and Engineering are low, and should be reviewed.  ZAMB1A - SEc-D ^TCATIoN PYZJECT C( TI-Il REPORT OSTKMTED AND ACTUAL VM~LHENToN AND pUgUMUM?8 1969 1970 1971 19712 1973 1974 1973 1976 1977 1979 Acite(7) '2 3 4 1 ' 2 3 4 1 2 3 '4 1 2 3 4 1 2 34 '2 ' 3 ' 4 1 23 4 2 3 4 1 '2 3 4 1 2 3 4 1 2 3 4 Missilone vi:,t,n, Zeble () (3) (2) (3) (3) <3> (3) (3 (3) <3) (4) (3) (3) <4) <3) (3)(4)(3)<4)(3)(5)(3) (3) (3) (4) (3) (6) (4) (4) Conultent Architert. ( School of Enieering II Sketch Design ( School of Edocation IS T nd ( Flo.tel.. Ceon Atee. 6 Tender Doctuent. ( Stvff ouaeen ( qchool of Agcltural ( Science hana~ rmriture and Equpoont Master 1i.te prepared, procrement and ins tallltinn. C,1l Work. Tendere and Contreet Averd. School of Enoieering 11 School of Education 11 . Hoetel., Con Area and Stoff Hou.~ Bite Utilittee and DevlopmDent School of Aprtcultur.I SrIen. .) L.bortory Bult idt. b) Fr~ Mach-nery Shed Diehursement. (ln USi MIllione) t.o 1 a 1 t o t a 5 o II 1 t o S 1 ,to t. 1 t te 1 t o 1 a 1 t ta 1 o I te a t o 8 1 "t Annual teioburgoent t t US$ 0.05 1.30 1.90 1.40 0.65 - Appri.s (--- (% of loe 1~ 25% 36% 26% 12% - Atual S - .1 1.24 1.39 0.33 0.16 0.14 0.18 0.15 0.59 (lofloan 21% 23% 26% 61 3% 2% 3% 3% 11% CuDulottve Diaburse~nt AppralU.1 S 0.05 1.35 3.25 4.65 3.30 - AJne 30 - 9.27 1.90 3.30 3.92 4.13 4.24 4.42 4.67 5.30 ( Deeer 31 - - 1.12 2.36 3.75 4.08 4.24 4.38 4.56 4.71 ån % betven Apprel4I end Actoal - 5 - 135% . 190 - 97% - 41 . §;OUlICF Beok roup staff f.rch vt 1474 MOTs* () Apprael (2nd) April-My 1968 - origial pmject. (2) bero of *lfectiven.es. May 5, 1970 (3) Supervision .lisson. (4> CI-Ing Daten! <oeisnel /3/73. 1st revted l12/31/74, nd revted 9/30/75, 3rd rovtsad 3/31/76, 4th revted 3/31/78, ,4 reSt vId 3/31/79, end 6th ~evIed 9/30/79.) (3) å~ ~et to Project, June 7. 1976 (6) Copletion teciton, Joly-Auget 1976 (7) No Iplemnt.tion ocheduoe ee prepared by the ApprotsaI toe=. (9) F1-etele. ce Aree and an aff §t ueaf K nd oc eaoll of eeeng/duestn ware preetigally igcoted nd handed oner the petveritty Jaumry 1973 lnd Morch <973. 111ever, everel htiltife we nt ees¥eted (9eMLse lecture theltre. T.1. stede) ud mmre *trots by ceatractebs had to () IM, o f the ta.l f.an of 0991.3 IIn, u231.4 viliien we. liehlrsed le emetnettoin category. U00.3 Dilltån ie tenfontante eatcery und U881.2 illilon in furnture and eqipmlnt ceategory. AM=E 2 - 196 - ZAMBIA SECOND EDUCATION PROJECT COMPLETION REPORT Pr6lect Costs by Components (in WO') Original Components Apraisal Actual 1. School of Engineerin Construction 860.3 1,204.8 757.2 1,064.1 Site Development _1. 9. 56.1 78.8 - Total Civil Works Cost 926.2 1,297.0 813.3 1,142.9 12Z Professional lees and Expenses 119.9 167.6 155.1 217.9 302 Furniture 49.4 69.1 20.4 28.7 - 58% Equipment 3.1 5 476.0 244.0 342.9 - 28% Total Cost of I 1,434.0 21007.7 1232.8 1732.4 - 14 II. School of Education Construction 117.7 1,005.1 712.0 1,000.5 Site Development 55.8 78.1 8.8 12.4 Total Civil Works Cost 773.5 1,083.2 720.8 1,012.9 - 6% Professional Fees and Expenses 100.1 140.1 148.7 209.0 + Purniture 50.9 71.2 29.8 41.9 41% Equipment -1jR _8.3 54.1 76.0- Total Cost of II 980.5 1,372.8 953.4 1,339.8 -2% III. Student Rosegls. Common Areas, and Staff Housing Construction 2,044.3 2,862.3 1,780.0 2,501.4 Site Development 225.9 316.2 -2.6 116.1 Total Civil Works Cost 2,270.2 3,178.5 1,862.6 2,617.5 - 18% Professional Fees and Expenses 289.9 405.8 187.7 263.8 - 35% Furniture 271.7 380.3 217.2 305.2 20% Equipment 22.3 31.2 41.6 58.4 4_872 Total Coat of 111 2,854.1 3.995.8 2,309.1 3,244.9 -192 Total Cost of I-III 5268.7 7.376.3 4,495.3 6317.1 - 142 Additional Components IV. School of Agricultural Science Construction of Laboratories - - 380.0 476.2 - Construction of Farm Machinery Shed - - .63L 0 8 - Total Civil Works cost - - 443.0 555.1 - Professional Fees and Expenses - - 70.5 88.3 - Furniture - - 33.2 41.6 - Equipment (Lab Bldg. and Farm) 402.1 103. -_ Total Cost of IV - - 96.8 1188.9 Total Project Cost: (I-IV) 5,268.7 7,376.3 5A444.1 7,506.0 +2% Source: Project Unit March 31, 1979 - 197 - ANNEX 3 zAmBIA - SECOND EDUCATION PROJECT COMPLETION REPORT UNIT SPACE ALLOCATION AND COST PER STUDENT PLACE Original Components Appraisal Actual %Diff School of Engineering Net area (useable) per student place (sq m) 8.0 8.8 +10% Gross area (incl. circulation and walling per student place (sq m) 10.4 11.3 + 9% Civil works cost per sq m gross area (US$) 344 281 -18% Consultant architects' fees in % of civil works cost 13% 19% 45% Civil Works cost per student place (US$) 3,600 3,175 -12% Furniture/Equipment cost per student 1,500 1,030 -31% Total cost per student place (US$) 5,557 4,812 -13% School of Education Net area (useable) per student place (sq m) 5.6 5.9 + 5% Gross area (inc. circulation and walling per student place (sq a) 7.3 7.4 0% Civil works cost per sq m gross area (US$) 299 277 - 8% Consultant architects' fees in % of civil works (US$) 13% 20% 50% Civil works cost per student place (US$) 2,2G0 2,060 - 6% Furniture/Equipment cost per student place (US$) 304 240 -21% Total cost per student place (US$) 2,790 2,723 - 2% Students' Hostel Net area (useable) per boarder (sq m) 8.2 8.3 + 1% Gross area (incl.circulation and walling) per boarder (sq m) 11.5 11.6 + 1% Civil works cost per sq m gross area (US$) 254 206 -19 Consultant architects' fees in % of civil works (US$) 13% 9% 442 Civil works cost per boarder (US$) 2,910 2,400 -17% Furniture/Equipment cost per boarder (US$) 386 316 -18% Total cost per boarder (US$) 3,672 2,935 -20% Additional Components School of Agricultural Science Laboratory Building Net area (useable) per student place (sq m) - 14 - Gross area (incl. circulation and walling) per student place (sq m) - 16 - Civil works cost per sq m gross area (US$) - 427 - Consultant architects' fees in % of civil works (US$) - 16 - Civil works cost per student place (US$) - 6,939 - Furniture/equipment cost per student place (USS) - 6.818 - Total coat per student place CUSS) - 14,861 - Farm Machinery Shed Gross area (sq m) - 576 - Civil works cost CUSS) - 80,000 - Civil works cost per nS gfoss area ( USU) - 139 - Source: Bank Group Staff March 31, 1979 ZAMBI*: SECOND EDUCATION PROJECT - LOA-fk4- Ak- Completion Report-Disbursement Graph Calendar Yeays 19?0 1971 1972 1973 1974 1975 1976 19717 19k 1979 Quarters 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 34 1 2 3 4 1 2 3 4 1 2 3 4 1 2 4 1 2 3 4 U8$ in Million& 5bO1000 4.38 '. 400 _.65 4,08 4244.56 3.75 p/3.311 3.00 P3.25 2.0Q 2.36 / 1.9 1.3! 1.00 L.12 0.27 let Effective Date A)ptaisal Revised May 5, 1970 ClOSi Bt__te Closing _4th Revised Aug. 31, 1973 Date Closini Date Dec 31 1974 trch 31 1971 2nd Revised 5th Mraisal Estimate Ctual fin n veV fept 30 195 Clostt Date Bank Group 3rd Revised Mrch 31 1979 July 1 183r ejd Closing Date 6th March 31 1976 ZAMBIA - SECOND EDUCATION PROJECT NUMBER OF EMPLOYEES BY INDUSTRY AND MAJOR OCCUPATIONAL CATE9DRY ON 30TH JUNE, 1975 PROJECT COMPLETION REPORT > 00 0 I. 0ndReatd orer - ~ ~ ~ ~ s '4 a 4 U U.4 U w OhAJOR OCCUPATIONS 1 20 32 9t 483 19 5 Ue 4 87 Cw0,51 Mangeia an ClericalA w1 34 702 0 14 0 1158c,1 w5 Ot 6 2 1 1 - 3 673 4. 7 393 1 Ao 1186 10 48 -0 9 .wV,., - 169 - - 46 12,65 0 A 4 r4 04. 0 a: a 0.4. a 0- ' . .4O ___ W_ __ A . I Ua0 Gl ed ok00 2 1 12. - F -t 22 33ON2. Professional, Technical Zambian 1,038 2,786 526 201 640 805 329 629 18,863 25 817 58.7 and Related workers Other 119 2.773 408 324 948 483 198 531 4,871 10,655 41.3 Administrative, Zambian 1.410 4,936 3,687 260 2.292 6,522 4094 6,108 16,576 45,885 Managerial and Clerical workers Other 119 1,019 1,032 34 702 1,472 347 1.158 1,112 7,075 15.4 Sales and Service Zambian 326 856 1,737 80 1,025 8,832 1,275 5,555 14,338 34,024 Other 6 247 110 - 35 673 34 77 393 1,575 4.6 Agricultural, Forestry Zambian 11,861 -. 105 48 - 9 169 - - 463 12,655 %- fishery and wild life % workers- Other 286 14 12 - - - - - 22 334 2.61 Produc.'.ion, Zambian 3,454 18,345 21,683 757 23,540 3,873 3,372 1,082 8,352 84,458 Sanufacturing, construction and Other 75 3,182 1,164 20 1,970 409 243 58 163 7284 8.6 maintenance workers rransport, General Zambian 16,871 29,482 13,999 3,222 41,714 12,779 11,660 2,696 30,090 162,491 Area Unstated Other 845 3,023 264 2 935 223 788 86 429 6,587 4.1 h11 Occupations Zambian 34,960 56,510 41,680 4,520 69,220 32,980 20,730 16,070 88,660 365.330: Non- Zsmbian 1,530 10,250 2,990 380 4,590 3,260 1,610 1,910 6,990 33,510 L 9.2 Source: CSU ManEower Survey JuLy, 1978 - 200 - ANNEX 6 ZAMBIA Second Education Project Completion Report Zambianization of the Labor Force 1965-1977 1965 1969 1974 1977 Category 'A"1 Total 10150 9840 14327 18961 2/ 9/ Non Africarr 9500 7828 8866 860 African/Zambian 650 2012 5461 10361-4 % Zambian 6.4 20.4 38.1 54.6 'A' as % of Total 3.7 3.0 3.7 5.4 Category 'B'/ Total 13500 35026 46933 54112 African/Zambian 1500 15498 26933 34612 % Zambian 11.1 44.3 57.4 64.0 'B' as % of Total 5.0 10.7 12.2 15.3 Residual Total 247257 283424 323630 279927 Non African 13261 464 4434 3400 African/Zambian 233996 282960 319196 276527 % Zambian 94.6 99.8 98.6 98.8 Residual as % of total 91.3 86.3 84.1 79.3 Notes: 1/ Post Form 5 Education / Breakdown for 1965 and 1969 is African/non-African; for 1974 and 1977 Zambian/non-Zambian. 3/ Estimated 4/ MRt projection 5/ Up to Form 5 Education Sources: 1965, Manpower Report, Jolly, et. al. 1969, Central Statistical Office 1974, Higher Education and the Labor Market, Case, et. al. 1977, Manpower Research Unit July 31, 1978 UNIVERSITY OF ZAMBIA GROWTH OF FULL-TIME EQUIVALENT ENROLLMENTS BY SCHOOL 1974 - 1977 ACADEMIC AGRICULTURE CONT.ED EDUCATION ENGINEERING HUMANITIES LAW MEDICINE MINING NATURAL TOTAL YEAR S/SCIENCES SCIENCES 1974-75 40 (2.2) 98 (5.5) 380 (21.4) 117 (6.6) 467 (26.3) 100 (5.6) 40 (2.2) 15 (0.9) 520(29.3) 1777 (100) 1975-76 87 (3.2) 60 (2.2) 490 (18.4) 158 (5.9) 686 (25.7) 183 (6.9) 148 (5.5) 39 (1.5) 820(30.7) 2671 (100) 1976-77 110 (3.8) 71 (2.4) 598 (20.6) 165 (5.7) 810 (27.9) 187 (6.4) 153 (5.3) 51 (1.7) 654(26.3) 2799 (30.9.77) (100) ' 1977-78 78 (2.5) 12,(3.6) 689 (22.4) 157 (5.1) 904 (29.4) 221 (7.1) 142 (4.6) 69 (2.3) 709(23.0) 2981 100.9.78) (100) NOTE - 1. Figures in brackets are percentages of total enrollments. 2. Total enrollment for 1977-78 includes 465 (232 full-time equivalent) enrollees in Correspondence Courses. 3. In 1977-78, 41% of F.T.E. enrollments in Correspondence Courses were in the School of Education. SOURCE: Manpower Research Unit University of Zambia August 1978 ZAMBIA SECOND EDUCATION PROJECT (LN 645-ZA) PROJECT COMPLETION REPORT PERSISTENCE OF ZAMBIAN SECONDARY SCHOOL TEACHERS IN SERVICE S 0 URCE NUMBER % All Sources Total output 1970-77 2,000 of which entered teaching 1,500 75 of which still teaching 1978 1,100 55 UNZA Graduates Only Total output 1970-77 600 of which entered teaching 350 58 of which still teaching 1978 200 33 Nkrumah Teachers College Total output 1970-77 1,000 of which entered teaching 900 90 of which still teaching 1978 700 70 SOURCE: Unpublished Study C. P. Shaw Manpower Research Unit University of Zambia April, 1978 UNIVERSITY OF ZAMBIA STUDENT/STAFF RATIOS COMPARED 1968-69 anc. 1977-78 1968-69 1977-78 FACULTY STUDENTS STAFF RATIO STUDENTS STAFF RATIO Agricultural Sciences - 1/ 4 0 78 29 3 Admin/Cont. Education 852/ 14 6 12 --if - Education 178 26 7 689 74 9 Engineering 27 10 3 157 24 7 Humanities/Soc. Sciences 390 48 8 904 48 19 Law 51 9 6 221 14 16 Medicine 20 20 1 142 31 5 Mining - - - 70 13 5 Natural Sciences 259 38 7 709 67 11 Total L010 169 Av. 6 2982 300 Av. 10 NOTE: 1/ Staff had been ippointed but no students as yet Enrolled. 2/ Majority 6f students in continuing education vere registered in Administration. 3/ Students under correspondence instruction are taught by the respective faculty members. SOURCE - Appraisal Report -.Manpower Research Unit September 1978