Somalia - Education Rehabilitation Project

Document of The World Bank FOR OFFICIAL USE ONLY C.i2 Z411/ - 50o Repoit No. 8180-SO STAFF APPRAISAL REPORT SOMALIA DEMOCRATIC REPUBLIC EDUCATION REHABILITATION PROJECT MARCH 9, 1990 Population and Human Resources Operations Eastern Africa Department Tbis document hgs a resicted dIsr on _d may be used by oedpl o m thee n ef thdr offcW dudies. Its content may not otewse be disdosed wihbout Woald Bank authoIzaton.  CURRENCY EQUIVALENTS Current Unit - Somali Shillings (SoaSh.) So.Sh. 880 - US$ 1.00 So.Sh. 1 - US$ 0.0011 (as of January 1990) GOVERNMENT FISCAL YEAR January 1 through December 31 ACADEMIC YEAR For Primary and Secondary Level - September-June For University - Lctober-July  FOR OFFICIAL USE ONLY ABBREVIATIONS AND ACRONYMS AfDB - African Development Bank ASAP II - Agricultural Sector Adjustment Program II CDC - Curriculum Development Centre CEA - Coimmuity Education Association CEO - Community Education Officer CES - Community Education Service DANIDA - Danish International Development Agency DG - Director General EEC - European Economic Community BPS - Education Facilities Section nLc - Family Life Centers IDA - International Development Association ILO - International Labour Organization IWE - Institute for Vomen's Education MBT - Mobile Building Teams HOE - Ministry of Education and Culture NEB - National Examination Board OPEC - Organization for Petroleum Exporting Countries PED - Primary Education Department PMU - Project Management Unit PTTI - Primary Teachers Training Institute REO - Regional Education Officer SBU - School Building Unit SEB - Somali Examination Board SIDAM - Somali Institute of Development Administration and Management SHTU - School Management Training Unit SNU - Somali National University TTD - Teacher Training Department UNCDF - United Nations Capital Development Fund UNICEF - United Nations Children's Fund UNESCO - United Nations Educational Scientific and Cultural Organization USAID - United States Agency for International Development WFP - World Food Program 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.  SOMALIA STAFF APPRAISAL REPORT EDUCATION REHABILITATION PROJECT TABLE OF CONTENTS CREDIT AND PROJECT SUMMARY i - iii I. The Education Sector Page No. A. Socio-economic Background ................... .........*.*....*.........*.*. 1 B. The Education System .............................. 2 C. Main Issues ............................. 6 D. Government's Sector Strategy ....................... ... 10 E. The Role of the Bank .........*.................... 11 F. Donors Role .......... 13 II. The Project A. Project Objectives .......................... . .... 14 B. Project Components ....... ....................... 14 C. Project Description ............................. 15 - Upgrading Teaching Staff ............................. 15 - Textbooks: Development, Procurement and Distribution .... 18 - Institutional Development ............................. 20 - Physical Rehabilitation ............................. 26 - Project Management Unit .............................. 30 III. Project Costs and Financing Plan A. Cost of the Project ........... .................. 31 B. Financing Plan ....... . ... s ...... ....... . ............ 34 C. Recurrent Cost Implications .................. 35 IV. Project Implementation A. Project Preparation .................................. ..... 36 B. Project Management ................................... 36 C. Specialist Services and Fellowships ....37 D. Procurement .. .. . ....... . .38 E. Disbursements ..... ......... . ... 41 F. Account and Audits..... ... ................ 41 G. Project Monitoring and Evaluation . . .. 42 V. Proiect Benefits and Risks AV. A enefits reached.and.Rec....ndatio. 44 B. Risks ....................... ....44 VI. Agreements reached and Recommendation 45  LIST OF ANNEXES Annex 1 - Basic Data Annex 2 - Structure of the Education System Annex 3 - Organization Chart of MOE Annex 4 - Letter of Education Policy Intent Annex 5 - Projection of Financial Needs of the Education Sector Annex 6 - Community Education Associations Annex 7 - Project Costs Annex 8 - Schedule of Disbursements Annex 9 - Implementation Schedule Annex 10 - Monitoring and Evaluation Process Annex 11 - Plan of Actionx on Policy and Institutional Development Annex 12 - Organization Chart of Project Management Unit Annex 13 - Statistical Profiles of the Somali Education System Annex 14 - List of Documents in Project Files IBRD MAP NO. 21789 This report is based on the findings of an appraisal mission in June 1989 comprising of Messrs. Abdun Noor (Senior Education Planner, Mission Leader), Swadesh Bose (Senior Economist), Pat Walker (Architect) and Ms. Beatrice helbling (Operations Assistant) and of a post-appraisal mission in November 1989 comprising of Me '8s. Noor (Mission Leader) and Nicholas Burnett (Senior Economist). Mr William Cooper (Consultant/UNDP) also contributed to this report. Ms. Raju Laburam assisted in processing the report. l  - i - CREDIT AND PROJECT SUMMARY Borrowers Somali Democratic Republic Beneficiarv: Ministry of Education and Culture Credit Amount: SDR 19.7 million (US$26.1 million equivalent) Tensst Standard IDA terms with 40 years maturity Prolect Obiectives: The central objective of the proposed project is to revitalize the education system through sustainable measures designed to restore teaching quality and reverse the decline in enrollments. To achieve this objective the project will: (a) improve the quality of primary education nation wide through teacher and headmaster training and the provision of textbooks and teachers' guides; (b) strengthen the Ministry of Education and Culture's institutional capacity for planning and managing the education system and for implementing investment projects; and (c) increase access to primary education in four of the country's eighteen administrative regions through the construction andlor rehabilitation of primary schools. Project Descriptions The proposed project would provide support for: (a) Teacher Upgrading: Development and delivery of (i) in-service upgrading programs for about 1,500 primary teachers (about one-quarter of the current teaching force); and (ii) professional development programs for about 300 headmasters, school inspectors, regional and district education officers. Establishment of inservice training facilities for 600 teachers per annum in three locations. (b) Textbooks: (i) printing of about 1.6 million locally- developed textbooks and 100,000 teachers' guides and distribution to all primary schools; (ii) establishing a pilot cost recovery scheme in the Benadir region and (iii) further strengthening the textbook writing and manuscript preparation programs of the Curriculum Development Center (CDC). (c) Institutional Development: Strengthening of the Ministry of Education and Culture with support for (i) Departments of Planning, Finance, Personnel and Primary Education to improve data collection and analysis, strengthen budget preparation, improve  - ii - personnel management, strengthen management of primary education and conmunity mobilization, and streamline operational systems and procedures; (ii) the Sch'ool Inspectorate for effective school inspection on a reqular basis; (iii) the National Examinations Board (NEB) to improve its competence in test construction, measurement and evaluation; and (iv) the Office of the Minister to establish monitoring and evaluation functions. (d) Physical Facilities: Rehabilitation or constr__tion of about 120 primary schools in four regions (Lower Shebeele, Middle Shebeele, Bay and Gedo), benefiting about 48,000 students; provision of school furniture, book storage space, community meeting space, water supplies and latrine blocks; construction and furnishing of about 120 staff houses for headmasters, and office space for district education officers and school inspectors. (e) Project Management: Strengthening the existing project implementation unit for effective implementation of the rehabilitation program and for coordinating and monitoring all educational activities financed by the project. PROJECT BENEFITS AND RISRSt Benefits: The project will rehabilitate the primary education system by providing improved school buildings, better-trained teachers, textbooks and teaching materials which will directly benefit 480,000 primary students and 8,000 teachers country wide. The project will also restore the Government's capacity to plan, manage and finance its education system. RMisks Major risks associated with this project are: (a) that the Government may not provide an adequate budget for education for the fiscal years 91 to 94; (b) that teachers and officials of the Ministry of Education and Culture may leave the education system for more lucrative employment; (c) that rural communities may not be able to provide sustained support for their schools; and (d) that the civil unrest may spread, drawing more resources away from the social sectors and undermining the developmental goals of the project. The problems of under financing will be reviewed annually at the macro-level through PFP discussions and Public Expenditure reviews, and at the project level through annual implementation reviews. The risk at (b) will be addressed by establishing a more attractive career structure for teachers and introducing incentives linked to teacher training. With respect to the risk at (c) project-financed community education officers will assist the communities in developing viable and i  - iii - sustainable mechanisms of support. This aspect of the project is of a pilot nature and it is understood that covunaity support may only be realized in the form of services, not financing. To cover the risk at (d) the design of the project allows for flexibility in implementation such as relocation of construction activities to more secure administrative regions, and adjustments to the number of textbooks to be provided. ProJect Components and 8stimated Costes US$ million Local Foreign Total 1. Upgrading Teaching Staff 2.50 0.86 3.36 2. Textbooks: Development, Procurement Distribution 0.20 4.99 5.19 3. Institutional Development 0.62 2.77 3.39 4. Rehabilitation of Physical Facilities 2.24 9.66 11.90 5. Project Management 0.49 1.84 2.33 Total Base line Costs 6.05 20.12 26.17 Physical contingencies 0.25 2.00 2.25 Price contingencies 1.05 3.03 4.08 TOTAL PROJECT COSTS 7.35 25.15 32.50 Financins Plan Local Foreign Total IDA 4.15 21.95 26.1 UNCDF - 3.20 3.2 Government 3.20 - 3.2 7.35 25.15 32.5 Estimated Annual Disbursements: IDA Fiscal Year 1991 1992 1993 1994 1995 1996 1997 1998 (US$ million) Annualt 0.80 2.94 5.03 6.66 4.78 4.54 1.10 0.25 Cumulative: 0.80 3.74 8.77 15.43 20.21 24.75 25.85 26.10 Econaomic Rate of Returns Not applicable ft: IBRD No. 21789  I. TEE EDUCATION SECTOR A. Socio-Economic Background 1.01 Somalia is a large, sparsely populated country with a population of about 6 million, growing at about 3 percent per year. About half the population consists of nomadic pastoralists, whose livestock production is the mainstay of the economy, accounting for some 40 percent of GDP and 75 percent of exports. Somalia is one of the least developed countries of the world, as classified by the United Nations. Per capita GDP (1988) is about US$280 at the official exchange rate and US$170 at market exchange rates. The average life expectancy at birth is 46 years, the infant mortality rate is 130 per thousand, and the primary school enrollment rate is less than 10 percent. 1.02 On assuming power in 1969, the present government initiated development efforts mainly through the public sector and cooperatives, for the stated objectives of egalitarianism and social justice. Emphasis was given to social sectors. In a society embedded in centuries old, oral traditions, Somali was successfully introduced, in written form, as the national language; the literacy rate was substantially raised; access to education was expanded and a national university established; and a rudimentary system of primary health care was introduced. These achievements on the social side, however, were not matched by economic achievements, because of a combination of policy-related and exogenous factors (erosion of incentives under pervasive controls; mismanagement in an over-extended public sector; the drought of 1974/75 and the border conflict with Ethiopia in 1977/78). Between 1970 and 1980 there was no real growth in per capita income. 1.03 Following the 197-78 border conflict with Ethiopia, there were sharp increases in government expenditures, mainly for national security. Government's financing of large budget deficits with credit from the Central Bank led to high rates of inflation and Somalia entered the 1980s facing a financial crisis, both domestic and external. 1.04 Since 1981 the Government has attempted to introduce, albeit haltingly, policy reform measures to achieve financial stabilization and economic growth. During the 1980s, while per capita GDP increased by less than one percent per annum, Somalia's financial and budgetary crisis persisted. Government's domestic revenue - mostly derived from indirect taxes - declined from about 12 percent of GDP in the early 1980s to 5-6 percent in 1987188. Government's development expenditures are entirely financed by external assistance, and about half the recurrent expenditures (amounting to around 132 of GDP) are now financed by counterpart funds generated from food and community aid programs. Despite this, recourse to Central Bank financing of recurrent expenditure has continued. 1.05 The bulk of recurrent Government expenditure is absorbed by security needs. As a result, economic and social sector ministries are severely underfunded, which has adversely affected their performance and limited the effectiveness of donor-supported investment programs. Public  - 2 - education is threatened with extinction as the Ministry of Education and Culture (HOE), which includes Higher Education, receive only about 1.5 percent of total recurrent expenditure, compared to 12 percent in the late 19708 and 6 percent in the early 1980s. However, the Government is beginning to adopt corrective measures. A three-year policy framework (1989-1991), prepared jointly by the Government of Somalia and the staff of the Fund and the Bank, calls for restructuring recurrent budgetary expenditure and raising the share of the budget for economic and social ministries from about 62 ir. 1987 to 152 in 1989, 18$ in 1990, and 20? in 1991. This commitment was confirmed in the Second Agricultural Sector Adjustment Program (ASAPII) and provides a framework for dealing with the social costs of adjustment. This target was not met for 1989; but for 1990, the budget provides an allocation of 20 percent for the economic and social ministries. 1.06 A long period of rap'd inflation starting in 1978 led to an erosion in the real value of salarier of civil servants (including teachers). In 1985. civil service salaries were only 15 percent of their 1977 level in real terms. In 1988, civil service salaries were raised by 100 percent. And again, in January 1989, salaries were increased by about 40 percent for the staff of Ministries of Education and Health, and 102 for the rest of the civil service. In July 1989 a further general salary increase of 30 percent was allowed (Annex 13, Table 8). Real salaries are still considerably below their 1977 level. Salaries of senior civil servants in Mogadishu are at present equivalent to 30-35 percent of the cost of living for an average family. Salaries of primary teachers are less than half of those paid to senior civil servants. To augment their income, Government officials often look for and obtain donor-financed salary supplements. Teachers, however, do not have access to these salary supplements and are dependent ou outside activities in their immediate environment. The Government recognizes that the situation must be corrected and has expressed its intent in the 1990 budget to increase revenues and augment salaries of civil servants consistent with financial stabilization objectives (para. 1.23). B. The Education System 1.07 Back8round: At Independence in 1960, Somalia inherited 233 primary and 12 secondary schools from the Italian and British colonial systems. The two systems not only used a different language (Italian or English), they were also quite different in pedagogical approach, curriculum and organizational structure. One of the Government's p=iorities therefore was to create a unified school system, expand access to education and set up a national university. During the first decade of Independence the growth of education was marginal. However a period of rapid expansion ensued, with the 1972 adoption of Somali as the language of instruction in primary and secondary schools, the abolition of school fees, and an intensive rural development and literacy campaign. Enrollments were boosted dramatically: For example, primary enrollments increased from 78,000 stuf.'nts in 1974 to 220,000 students in 1976, and rose more slowly thereafter to reach a peak of about 272,000 in 1981, representing about 30  percent of the primary school age population. Secondary enrollments also Increased at a rapid rate, from 9,500 in 1973 to a peak of about 65,000 in 1983. These enrollment levels were sustained for two or three years after which worsening financial provision for education precipitated a significant decline. By 1988, primary enrollments had fallen by 58 percent to about 159,000 (representing less than 10 percent of the primary age group), and about one quarter of all primary schools were closed. Enrollments in secondary and technical education decreased even more sharply from their peak levels (see table below). Enrollments at the Somali National University (SNU), however, which continued to receive significant external assistance -rom Italy, increased steadily and consistently, at an average annual rate of 24.7 percent, from 1,200 students in 1980 to 7,000 students in 1988. Table 1: Enrollment Data Enrollments Average Peak Year Current Annual Rates Peak Year Number (1988) of change Primary Education 1981 272000 159000 - 7.4 Secondary Education 1983 65000 40400 - 9.1 Technical & Vocational 1982 9500 4700 - 11.1 Education 1.08 Structure of the Education Slstems Somalia's education system (Annex 2) currently has eight years of primary education, consisting of a four-year elementary cycle and a four-year intermediate cycle. A primary school leaving examination determines entrance into secondary school. Secondary education, either general or technical, is of four years durationi and leads to a secondary school leaving examination. Higher education ix provided at the Somali National University (SNU) whose admission criteria include the completion of two years of compulsory national service and the passing of a university entrance examination. There is one functioning Primary Teacher Training Institute (PTTI) in Mogadishu, which offers a two year post-secondary course of studies. Secondary school teachers are trained in a four-year post-secondary program at the Lafole College of Education (LCE), affiliated with the National University. There are twelve two-year, post-primary vocational training schools which provide skills training in basic trades.  -4- 1.09 Language policy in Somalia's education system is complex: Somali and Arabic are the languages of instruction in primary and secondary education. 1.ost vocational and technical education is conducted in English while the majority of the faculties at the SNU use l.alian as the language of instruction. The Lafole College of Education uses English as the language of instruction, as do most private schools which have begun to develop in the Mogadishu area. Koranic education, which is provided in Arabic, exists throughout the country in a largely informal manner and is generally the only form of education to which nomadic children are exposed. 1.10 Management and Administration: The Ministry of Education and Culture (MOE) is responsible for the management and administration of primary and secondary education, technical education and vocational training, primary and technical teacher training and non-formal education. Until February 1990 the Ministry of Higher Education and Culture (MOHEC) oversaw the Somali National University (SNU), the Somali Academy for Science and Arts and the National Library. 1/ 1.11 The MOE has four levels of authority. At the central level, the MOE operates through twelve functional departments and one professional service, the National Examinations Board (Annex 3). Policy decisions, reached by the Minister of Education through a consultative process with the vice minister and senior ministry staff, are implemented by the Director General (DG) to whom the MOE Department directors report. In each of the country's 18 administrative regions, a Regional Education Officer (REO) is responsible for the implementation of the MOE's policies and programs and for providing feedback to the ministry on specific regional issues. The REO reports directly to the DG of the MOE. At the regional level, each REO is assisted by officers from the MOE Directorates of Planning, Inspection, Adult Education, Women's Education, Personnel and Financial Management, and Maintenance and Logistic Services. The third level of decentralized management and quality control is at the district level, where a District Education Officer (DEO), reporting to the REO, monitors and evaluates the schools in his district and provides professional backstopping to the teachers. The school principal and his teachers represent the fourth level of education management, at the level of the community. They are assisted by Parents' Associations which are responsible for mobilizing community support and for assisting in the maintenance and operation of the schools. 1.12 Educat.ion Finance: The bulk of education expenditure is covered by the budget of the Ministry of Education and Culture (MOE). In the 1975- 79 period, Somalia spent about 12 percent of its recurrent expenditure and / After negotiations were completed, the two ministries were combined into a single Ministry of Education and Culture, also called as MOE under the same minister. The organizational chart for the new MOE, has not yet been drawn up. The discussions in this SAR therefore refer to the former Ministry of Education.  7 percent of its development expenditure on education, equal to about 3.2 of percent of GDP. These figuzca are comparable to the average for Sub- Sahara Africa, where education typically absorbs 12 percent of Government recurrent expenditure, about 4 percent of GDP. These relatively high levels of spending on education were reflected in increasing enrollments which peaked in 1981-83 (Table 1). Since 1979, however as defense and security needs absorbed increasing amounts of the Government budget, both the level and the share of education in Government expenditure steadily declined, reflecting a shift in Government's priorities and an apparent loss of its commitment to education. From 1986 through 1988, MOE's share of Government spending had dropped to less than 2 percent of its recurrent expenditure, and about 3 percent of its development expenditure. Total public expenditure on education (recurrent and development) currently represents about 0.6 percent of GDP. As a result, enrollments at all levels of education (except university), suffered sharp declines as noted in para. 1.07. 1.13 The real value of the Somali government's expenditure on education (recurrent plus development) has fallen drastically from an index of 100 in 1978 to 26 in 1987; recurrent expenditure declined by as much as 85 percent, and development expenditure by 64 percent. If this trend of government's declining recurrent education expenditure continues, a functioning public education system will soon cease to exist. These figures do not fully reflect expenditure on boarding. Boarding facilities provided for about 102 of secondary students enrollment, 301 of technical and vocational students and 5O2 of university students cost about 360 million So.Sh. in 1989 and are entirely borne by the government. But the bulk of this expense is provided by the World Food Program outside the MOE budget through food aid in kind (about 310 million shillings) while the Government budget provides only about 50 million shillings for boarding costs. This practice hides the actual resource costs of the boarding system. 1.14 Several weaknesses in the Government's education expenditure pattern should be noted for recent years. First, based on 1985-87 data, the share of development extpenditure in total education expenditure exceeds 60 percent. However, about two-thirds of the development expenditure is in the form of technical assistance (teachers), thus reducing substantially the resources used for operation and maintenance of schools. Second, expenditure is heavily skewed in favor of higher education: higher education receives about 45 percent of total education expenditure, compared to only 21 percent for primary education and 34 percent for secondary education. The bias in favor of higher education is obvious and strong. In Kenya, for example, primary education gets about 60 percent, and higher education about 15 percent of education expenditure. Third, recurrent expenditure per pupil has declined dramatically and is now one of the lowest in the developing world. For 1989, budgeted recurrent expenditure amounts to about US$3.50 per primary student, US$12 per secondary student, and US$70 per university student. As recently as 1982, these expenditures were US$27 per primary student, US$82 per secondary student and US$900 per university student. Although teachers' salaries and  - 6 - allowances are extremely low (para. 1.20), very little is available for expenditures on textbooks, teaching materials and equipment. In 1989, for example, of US$3.50 spent per primary student, only US$1 was available for the purchase of textbooks and teaching materials; in 1982, about US$6 was spent per student on textbooks alone. Fourth, as large a share as 20 percent of MOE personnel expenditure is on non-teaching personnel, due to absorption of surplus teachers in the 1980's in administration, as enrollment declined. 1.15 A small part of education finance comes from non-government sources: school childrens' uniforms and some books and supplies are financed by the parents; some in-kind contributions such as assistance in school construction and maintenance come from the communities. In 1987, following Government's policy of encouraging parental/community financing of education, particularly with respect to school construction (para. 2.51), local councils fixed the level of voluntary contribution by parents at So.Sh 60 per child per month in primary schools and So.Sh. 100 per child per month in secondary schools. These contributions are largely intended to supplement teachers' salaries and only contribute to a small degree to the costs of school maintenance. However, information about the extent to which these contributions are being collected and how they are being used is not available, and the effectiveness of this scheme would require further investigation. A few private schools operating in Mogadishu are fully financed by beneficiaries. Education at the national university is fully financed (subsidized) by Government. 1.16 Education and Women: Enrollment of girls in primary schools increased from about 29 percent of total enrollment in 1972 to 36 percent in 1984, declining to about 31 percent in 1988. In secondary schools, female participation increased from about 15 percent in 1972 to 34 percent in 1984 and has remained at that level. Female enrollment at the national university stands at about 20 percent. With respect to teachers and administrators, about 35 percent of primary and 10 percent of secondary teachers are female. At the Somali National University, however women instructors are practically non-existent. Women occupy very few administrative positions in education: only 20 of the 470 primary school principals (about 4 percent) are female. Social factors, such as pressures for early marriage, traditional duties in family households, and parents' preference to attend to the education of boys first, contribute to the relatively low female participation rate in education. 1.17 In spite of these low participation rates, the education of women has received particular attention. So-called Family Life Centers (FLC) were established in the mid-70s to provide non-formal educational opportunities to women who did not have a formal education. The MOE's Institute for Women Education (IWE) trained about 700 teachers for the FLCs which, at the outset, offered four-year courses in home economics, nutrition and handicrafts. The economic downturn of the early 19809, however, has caused the PLC program to decline. Also, it was found that the four-year program was too long and did not adequately address the needs of rural women. Further changes in the concept and implementation of this  - 7 - special program are being considered by the MOE, although current resource constraints do not hold out much hope for quick and effective action. C. Main Issues in Education 1.18 Education in Somalia is in a state of crisis. The overriding sectoral issue is the grossly inadequate provision for education financing. Inadequate financing impacts on all levels of education but is most evident at the primary level where enrollments are declining precariously, teachers are leaving the system and schools are being closed. The situation is less alarming at secondary level although declining primary enrollments will eventually impact on secondary schools with similar effects. Because of strong bilateral support from Italy, university education is largely unaffected by the current financial crisis. With respect to teachers, the situation is critical: because of extremely low pay and very tough working conditions, particularly in rural primary schools, qualified teachers are leaving the service in large numbers (the annual attrition rate of primary teachers is about 20 percent). To keep the system going, the Government has had to resort to the use of national service volunteers (secondary school leavers without any teacher training) who now constitute about 40 percent of the primary teaching force (para. 2.03). The situation is less critical at secondary level because secondary schools are located in the larger urban centers where teachers have better opportunities of augmenting their incomes. With respect to educational facilities, many school buildings are in an advanced state of disrepair, while thei.e are hardly any textbooks, instructional materials or other educational equipment especially outside the Mogadishu area. And finally, the institutional infrastructure for the planning, administration, inspection and supervision of education has deteriorated badly as grossly underpaid MOE staff are preoccupied with the continuing quest for additional income (part-time teaching, private tutoring, commercial ventures, etc.) and neglect their regular daily work at the MOE. As a result, the impressive gains in access to and quality of education achieved during the mid-70s, have been virtually wiped out. 1.19 Inadequate Sector Financing: Significantly increased budgetary provision would need to be made to support the rehabilitation of education in Somalia, particularly with respect to increased teachers' salaries and allowances, the provision of books and instructional materials, and the maintenance of educational infrastructure. It is important to note that the proposed project would succeed in revitalizing primary education only if the required recurrent financing is made available (para. 1.22 and Annex 5). There is serious underfunding of recurrent expenditure at other levels of education as well - such as secondary, technical ane vocational. Also, within the education system, salarieslallowances of one class of teachers (primary for example) cannot be justifiably augmented without similar increases for all teachers and other education sector staff. The need is to ensure minimum recurrent financing required for the operation of the entire education sector.  - 8 - 1.20 With respect to primary teachers' incomes, salaries and allowances would need to be raised considerably to provide teachers with a reasonable standard of living, encourage them to turn up for work, and reduce their high attrition rate. Salaries and allowances of primary teachers, were increased by about 43Z in real terms between January 1988 and July 1989 (para. 1.06) and are estimated to meet less than one-quarter the subsistence needs of an average Somali family. The salary of a Somali primary teacher is only one-fourth per capita GDP, whereas in other East African countries it averages 5 times per capita GDP. During post appraisal, the Government agreed that salaries/allowances of primary teachers (who are mostly secondary school graduates) will be raised to twice per capita GDP by 1995 (see Annex 4). 1.21 MOE has begun to adopt some internal efficiency measures to reduce costs. For example, MOE has identified about 5,000 teachers reported absent from their schools for six months or more, and has started civil service procedures to remove them from the establishment register. The post-appraisal mission has confirmed that this process is firmly underway: to date, about 1,800 teachers have been removed and the remaining 3,200 teachers will be dismissed by June 1991. During negotiations, the government has confirmed that, the payment of salaries to 5,000 absentee teachers has been stopped. Cost savings due to the removal of nonworking teachers from the payroll should allow MOE to increase allowances to existing teachers and to purchase instructional materials. The mechanics of reallocation of these savings by the MOF will be discussed and reviewed during the annual joint MOE/IDA reviews (see Annex 11, 6.02). 1.22 Annex 5 presents tne Bank's estimates of the minimum recurrent financing required to operate the education system, including the central and regional MOE establishment, for the 1990-95 period. Th.ese estimates suggest that, in order to revitalize primary education and sustain a minimum level of quality and efficiency, recurrent expenditures for primary education would need to be mor^ than doubled in real terms from their 1989 level of So. Sh. 290 million to about So.Sh. 640 million in 1990, and increased eight-fold to about So.Sh 2.4 billion in 1995. It is further estimated that the minimum recurrent budget for the entire education sector (excluding higher education) should be about So.Sh. 1.4 billion in 1990, rising to about So.Sh. 4.0 billion in 1995 (all in 1989 prices). Higher education would increase the recurrent budget requirement by about So.Sh. 250-350 million per year (in 1989 prices). These figures compare to a 1989 MOE budget of about So.Sh. 700 million. 1.23 The Government has made some moves to increase resources for education: MOE's share of the 1990 recurrent budget has been increased to 6Z and its share of the investment budget to 92 compared to 4.9Z and 62 respectively in 1989 budget. In order to begin to provide an adequate financial basis for the revitalization of education in Somalia, and more particularly for primary education which the proposed project is designed to support, the Government was required, to submit to IDA its five-year plan for the financing of the education sector, indicating specific levels of expenditure for each level of education (primary, secondary, post-  - 9 - secondary) as discussed with IDA during the public expenditure review of November 1989 (see Annex 4). In addition, the Government has provided evidence during negotiations that it has allocated, in its 1990 budget, the minimum amount required for the financing of the education sector, excluding higher education. The actual 1990 budget allocations for recurrent expenditure in education amounts to So.Sh. 2,440 billion and for investment expenditure for education amounts to So.Sh. 910 million. The base salaries of teachers have been increased by 130 percent in 1990, while the professional teaching allowances of different categories of teachers will be raised by 200 percent to 400 percent in the same year, subject to their carrying out a full load of classroom teaching. Government also provided assurances during negotiations that it would, for the four subsequent fiscal years, submit each year, for consideration during the joint IDA/MOE annual reviews of project management and implementation (para. 4.21), its education budget proposals in accordance with the five- year financing plan agreed with IDA, and a statement of actual expenditures for the education sector for the previous two years. 1.24 Poor quality and low internal efficiency: Associated with the low level of expenditure is poor quality of instruction and low internal efficiency. At primary level, only about 512 of pupils complete the elementary cycle (grade 4), and 222 the entire primary cycle (grade 8). It is costing the system about 12.1 pupil-years of schooling to produce one primary school graduate. Although low efficiency can be attributed, in large part, to the effects of inadequate budget provisions, contributing factors also are: (a) the large number of inadequately trained, inexperienced and often unmotivated teachers; (b) the severe shortage of textbooks in the schools; (c) the dilapidated state of school buildings; and (d) the lack of supervision by inspectors and regional educational authorities. 1.25 Internal inefficiencies result mainly from poor policies and practices related to the teaching profession. The pupillteacher ratio (at 31:1 when untrained national service teachers are excluded) is low compared to other Sub-Saharan African countries, where the average was 37:l in 1983. This relatively low ratio, however, does not appear to have a beneficial impact in terms of higher enrollments or better student performance. The high teacher attrition rate (average seniority is 4.3 years and only about 102 have more than 10 years experience) is attributed to the low level of salaries but may also be due to the lack of coherent career prospects. High teacher turnover has encouraged Government's perception that the capacity for pre-service teacher training needs to be increased in order to fill the vact ed posts. However, IDA's analysis indicates that this is a "revolving door" situation where the perceived need for newly trained teachers is merely a function of the unusually high attrition rate. Moreover, projections of student enrollments and teacher requirements indicate that, even In an optimistic scenario of 10 percent p.a. growth in enrollments over the next 10 years, the current capacity for both primary and secondary teacher training is adequate to satisfy the need for additional teachers. During negotiations the Government provided assurances that the capacity for pre-service primary teacher training would  - 10 - be maintained at its current level, and that any plans for expansion of such training would be discussed and agreed vith IDA. Instead, the Government would implement specific measures for reducing teacher turnover and for upgrading teachers in post, which would be supported by the project (paras. 2.10 and 2.11). 1.26 Declining Enrollmentss Recent statistics are witness to the alarming decline in primary school enrollments over the last 5 years. The continuing loss of qualified teachers due to poor working and living conditions; the weak supervision and inadequate pedagogical backstopping from the central and regional levels of the MOE; the unavailability of textbooks and school supplies; and unsuitable, poorly maintained school buildings all contribute to the continuing decline in primary school enrollments. The project is designed to address these institutional weaknesses (para. 2.01). Other Socio-economic factors also contribute to the problem of school attendance, particularly as they apply to poor people in rural areas. For example, in times of economic hardship or during peak agricultural seasons (planting, harvesting) parents may need their children to help them on the farm. The requirement for parents to pay school fees (even if they are minimal) or to purchase basic supplies and school uniforms may also be a disincentive to send children to school. The lack of recreational facilities or other forms of school-organized activities could be another contributing factor. Although these factors are perhaps less well understood, the project would attempt to address them by increasing the involvement of parents and community leaders in the educational process at the community level. Measures being considered include setting up Community Education Associations (CEA) (Annex 6), adjusting the school calendar to avoid the peak agricultural seasons, waiving requirements for school uniforms, and providing more extra- curricular activities. For this purpose, assistance from NGOs and other organizations operating at the grassroots level would be actively explored. D. Government's Sector Strategy 1.27 Somalia's 1987-89 National Development Strategy and Program summarizes Government's objectives for the education sector as follows: (a) Universal primary education will be supported at a realistic level by the expansion of school facilities and provision of training and incentives to teachers; (b) Secondary schools will be rehabilitated and equipped with science laboratories. In-service training will be given to secondary teachers. The capacity of technical and vocational schools will be increased and the quality of training improved; (c) Education administration will be decentralized and community participation will be encouraged;  - 11 - (d) Access to university and the quality of undergraduate programs will be improved. Post-graduate programs and research facilities will be introduced. 1.28 Under normal conditions of economic growth and social development these objectives would essentially be sound and would warrant support by the international donor community. However, declining financial resources have led to the gradual impoverishment of all social sectors. Education has been particularly hard hit because, in addition to sharply lower budgetary allocations and actual expenditures, external financing has not materialized as expected, particularly for primary education (para. 1.35). In response to the declining resource situation, the MOE has adopted a more realistic strategy which has the following elements: (a) encourage community participation in the education process by expanding the Parents Associations into more active Community Education Associationst introduce on an experimental basis in four administrative regions measures which will reduce the financial burden on the farming population by adjusting the school calendar to the agricultural seasons and by waiving requirements for school uniforms. (b) use MOE's limited financial resources, particularly those made available by donors, for qualitative improvements to the education system, focusing on the ongoing program of curriculum development and textbook production, and on improving the quality of teaching through in-service and pre-service teacher training; (c) improve MOE's capacity for sector planning, and management, streamline MOE's operational procedures, strengthen school inspection and simplify the examination system. 1.29 These limited objectives are considered realistic in the present circumstances. The specific measures the Government intends to undertake and which the proposed project supports, focus on a number of mutually reinforcing components designed to revitalize the system including, textbook production, teacher upgrading, school inspection, examinations, etc. The Government also recognizes the vital role communities have to play in the provJ.sion of education - a basic human right - an aspect which the proposed project would attempt to strengthen. The Government has presented its strategy and the associated policy changes in a letter of education policy intent (Annex 4) along with a plan of action on policy and institutional development (Annex 11) to IDA (para. 6.01). S. The Role of the Bank in Somali Education 1.30 Past experiences IDA has financed four education projects in Somalia. The First Education Project (Credit 247-SO, for US$3.3 million, signed in 1971 and completed in 1976) assisted to (a) improve quality of technical education; (b) diversify curricula in general secondary schools;  - 12 - (c) increase enrollment capacities of secondary schools, two technical institutes and the Lafole College of Education; and (d) develop a local capacity for the design and construction of schools. The Second Education Project (Credit 511-SO, for US$8.0 million, signed in 1974 and completed in 1981) financed (a) establishment of a primary teacher training college and the Academy of Somali Studies to support Government's basic education and literacy program; (b) continued curricular diversification in secondary schools; and tc) establishment of nomadic training centers. The Third Education Project (Credit 738-SO, for US$8.0 million, signed in 1977 and completed in 1985) supported (a) improvement of tLe Curriculum Development Center (CDC) and expansion of the State Printing Agency (SPA) for the preparation and printing of school textbooks; (b) establishment of a Livestock and Forestry School, a School of Nursing, and a Health Personnel Training Institute; and (c) support to the National Trade Testing and Training Center to strengthen vocational training. The Fourth Education Project (Credit 1105-SO, for US$10.2 million, signed in 1981 and completed in March 1989) supported (a) improvement of educational quality by developing in-service teacher training at Primary Teacher Training Resource Centers (PTTRC's), and upgrading secondary teacher training at the Lafole College of Education; (b) establishment of four new and expansion of ten existing general secondary schools; and (c) technical assistance to the Somali Institute of Development Administration and Management (SIDAM) to help develop professionals in accounting, administration and management. 1.31 Impact of IDA Financing and Lessons Learned: The most important issue affecting education in Somalia since 1981 has beeLi inadequate recurrent funding. This issue became increasingly apparent during the implementation of Education IV and was highlighted in OED's 1987 audit report of the Third IDA Education Project. The gravity of the financial situation, the resulting declines in enrollments and the long-term impact of declining resources on human resource development became particularly evident during the Bank's 1987 review of Somalia's economy. Following this review, donor community, under IDA's leadership, formulated for donor consideration a "minimum package of actions' needed to arrest the decline and revitalize the education sector. This led to renewed donor interest in the education sector (para. 1.36) and the identification and preparation of this proposed project. 1.32 Experience vith implementation of the four IDA-financed education projects has provided guidance to the design and implementation of the proposed project. Principal among the lessons learned are: (a) education project design should ensure that recurrent cost implications are kept to a minimum; (b) complex projects involving several ministries and agencies may cause coordination problems and implementation delays and should be avoided; (c) project preparation should include explicit attention to the mechanics of project management and administration; and (d) educationltraining programs alien to Somali culture, such as training centers for nomads, which were introduced without adequate sociological and anthropological studies, do not work and should not be supported. These points have been taken into account in the design of the proposed project.  - 13 - 1.33 Rationale For Further IDA Lendins to Education: Given the Government's extreme resource constraints, the MOE needs financial support from all possible sources to rehabilitate its education system. IDA has taken the lead among the donors in assisting the Government in the education sector, particularly in view of IDA's role in the reordering of resource allocations through DMFIBank discussions on the Policy Framework Paper and through the Public Expenditure Review process. The rehabilitation of public education in Somalia is recognized by all donors as well as the Government as a long-term undertaking. The proposed project would make an initial contribution to this process by focusing on two critical areast (a) primary education, which needs an urgent infusion of assistance in order to halt the alarming decline; and (b) institutional development, which is necessary to strengthen the MOE's capacity for educational planning and management; thus laying the foundation for further investments in education by IDA and other donors. F. Donors Role in Education 1.34 Donors, including IDA. have played a very important role in Somali education by financing the development of educational infrastructure (buildings and equipment) and the training of Somalis (provision of technical assistance and scholarships). Their combined contribution at times represented up to 50 percent of total government expenditures for education. The multilateral donors include IDA, AfDB, UNICEF, UNESCO, WFP, and UNDP, the bilateral donors were mainly Italy, Egypt, West Germany, U.K., USAID, SIDA, DANIDA and Saudia Arabia. In the past Donors were involved in all major educational efforts undertaken by the Government but their contributions were largely uncoordinated. Since 1987, however, a donor action group on education has been operating in Somalia; it is currently chaired by UNICEF. 1.35 In recent years, the flow of external assistance to the education sector, mostly in the form of grants, has declined in real terms. For example, in 1989 Government expected to receive So.sh. 1,760 million (US$4.8m) compared to So.Sh.800 million (US$4.7m) in 1988, but substantially lower than So.Sh.730 million (equivalent to US$7.3 million at prevailing exchange rates) in 1987. In 1989, assistance is being provided by only a few donorss Italy, Egypt, Saudi Arabia, UNICEF and WFP. Italy's assistance is large but confined to the National University. UNICEF continues to provide assistance to the Curriculum Development Center and to in-service teacher training. WFP is providing food for all school boarding facilities including the University. The total estimated value of this food aid exceeds the annual salary payments to all primary teachers. Saudi Arabia provides an unknown amount for Arabic and Koranic teachings. 1.36 The prospects for donor assistance to education in Somalia for the 1990's are, however, beginning to look more promising. Using the umbrella of this proposed education project, other donors have expressed interest to provide further support for the revitalization of the education system. Chief among these prospective financiers are the EEC (primary school rehabilitation and direct budgetary support to improve teachers' incomes), WFP (food aid to both students and teachers), and OPEC (primary school rehabilitation and teachers housing).  - 14 - II. THE PROJECT A. Proiect ObJectives 2.01 The central objective of the proposed project is to revitalize the education system through sustainable changes, and thereby reverse the decline in enrollments and erosion of teaching quality which has occurred in the past decade (para. 1.17). The Project would support the Government in reaching this goal by pursuing the following specific objectives: (a) improve the quality of primary education nation-wide through teacher and headmaster training and the provision of textbooks and teachers' guides; (b) strengthen the Ministry of Education and Culture's institutional capacity for planning and managing the education system and for implementing investment projects, (c) increase access to primary education in four of the country's eighteen administrative regions through the construction and/or rehabilitation of primary schools. B. Project Components 2.02 The project would be implemented over the seven-year period 1990-1996, and would have the following components: Mi) Upgrading Teaching Staff: Provision of equipment, materials, technical assistance, fellowships and operational support to (i) design in-service teacher training programs, develop training materials, train Somali tutors and conduct in-service upgrading programs for about 1,500 primary school teachers, 300 headmasters and school inspectors; and (ii) upgrade existing facilities for in-service teacher training in three locations: Mogadishu, Galkayo and Baidoa. (ii) Textbooks Development, Procurement & Distribution: Provision of equipment, materials, technical assistance and fellowships to (i) assist the Curriculum Development Center (CDC) in textbook writing and manuscript preparation; (ii) procure, store and distribute to all primary schools about 1.6 million textbooks and 100,000 teachers' guides; and liii) introduce, operate and evaluate a pilot cost recovery scheme for textbooks in the Mogadishu area. (iii) Institutional Development: Provision of equipment, materials, specialist services, fellowships and operational support to (i) the National Examinations Board (NEB) to strengthen its competence in test construction, measurement and evaluation, and improve its capacity to design, conduct and evaluate national examinations; (ii) the Ministry of Education and Culture (MOE)'s Primary School Inspectorate to effectively conduct school inspection on a regular  - 15 - basis; (iii) the MOE's Departments of Planning, Finance, Personnel, and Primary Education to increase the reliability of data collection and analysis, strengthen budget preparation, improve personnel management, streamline operational systems and procedures, strengthen planning and management of primary education, and improve community mobilization. (iv) Rehabilitation of Physical Facilities: Rehabilitation or new construction of about 120 primary schools in four regions (Lower Shebelle 73, Middle Shebelle 15, Bay 21, and Gedo 11), with a total of about 48,000 student places; provision of school furniture, storage space for books, community meeting spaces, water supplies and latrine blocks; construction and furnishing of about 120 staff houses for headmasters, and office space for district education officers and school inspectors. (v) ProJect Managements Provision of equipment, vehicles, technical assistance, staff training and operational support to strengthen and expand the existing project implementation unit for effective implementation, coordination and monitoring of project-financed activities. C. Proiect Description Upgrading Teaching Staff: 2.03 The primary school teaching force is poorly prepared and inadequately supported in the task of educating the current generation of Somalia children. The 5,000 regular teachers currently estimated to be in primary classrooms have generally completed only eight years of primary education. Most of them have had only limited exposure to teacher training and only about 30 percent have completed a formal preservice teacher training program, qualifying them as primary teachers. A large number of volunteers (estimated at 40 percent of the teaching force), secondary school graduates who are fulfilling two years of mandatory national service, are teaching in primary schools. They receive a six day orientation course prior to assuming their classroom responsibilities and are thus essentially unqualified teachers. Neither regular teachers nor volunteers have been familiarized with the new curriculum introduced by the MOE in 1984, or in the use of textbooks as an integral aspect of the instructional process. Books have been scarce for at least six years and standard teaching practices center on copying from the chalk board, oral dictation and recitation. 2.04 Training Program DesiRn: The project would support the development and delivery of a quality in-service teacher training program, based on the new curriculum and designed to improve the professional competence of primary teachers. Support would be provided for three  - 16 - distinct but inter-related programst (a) development of instructional materials for in-service teacher training, for which the professional capacities of the Teacher Training Department (TTD) of the MOE would be augmented; (b) training of about 80 tutors who would conduct in-service teacher training courses in 3 regional centers; and (c) delivery of in- service upgrading programs to about 1,500 regular (non-National Service) primary school teachers teaching in primary schools in the four project- supported regions. The training offered by this program would be linked with a career incentive package (para. 2.10) and with changes in the career structure for primary teachers (para. 2.11). 2.05 The program would be implemented by the Teacher Training Department (TTD) of the MOE. The TTD has developed an excellent in-service training proposal, with assistance from USAID and UNICEF, which envisages a two-year program in four phases: Phase I would be a 50-day full-time course in pedagogy and subject matter to be conducted during the summer vacation. Phase II would consist of 2 days of in-service training per month, for 9 months, during the following school year. Phase III would be a second summer course of 50 days full-time training, followed by Phase IV. another 18 days of in-service training during the school year which follows. A final examination would be administered by the National Examinations Board (para. 2.44). 2.06 Training Materials: Training materials for the in-service teacher training program, would be developed, tested and revised by the TTD. The project would support this process by providing overseas training for five members of the Teacher Training Department for a period of 4 months each. Four of them would specialize in the development of in- service training materials and the techniques of tutor training. The fifth would focus on evaluation of curriculum content and instructional materials. Following the return of the four tutor trainers, the TTD, together with CDC and with the assistance of a project-financed curriculum development/training consultant, would hold a 14-day workshop for about 30 CDC curriculum specialists, who would develop training mocules for the in- service teacher training program. Training modules required for phases I and II (para. 2.05) would be completed in the first project year (PY1) and for phases III and IV in the second project year (PY2). Formative evaluation of the training materials would be conducted throughout the in- service training period (para. 2.05) and a final revision of materials would take place in PY3, after the full cycle of the first round of training has been accomplished. The Curriculum Development Center would produce the training materials. 2.07 Training of Tutorss The project would assist in the training of about 80 teacher training tutors, who would conduct the proposed in-service training programs for primary teachers. The tutor training program would be designed and implemented by the four trained fellows of the TTD (para. 2.06), assisted by project-financed external specialists in teacher training. The program would consist of two consecutive sumner sessions of about 2 weeks each, to be held at the Mogadishu PTTI. Each summer session would accommodate about 40 trainee-tutors, so that the entire group of 80 would be trained over a four-year period. Trainee-tutors would be drawn  - 17 - from experienced staff of the TTD and the PTTI and from the corps of regional inspectors, district education officers, qualified headmasters and secondary school teachers. 2.08 The project would also provide one-week training workshops for about 36 district education officers (DEO) each year to enable them to supervise the in-service classroom portion of the teacher upgrading program (phases II and IV, para. 2.05). These workshops would be held at the Institute of Women Education (IW) in Mogadishu, whose facilities would be upgraded for this purpose under the proposed project. 2.09 In-service Teacher Training Program: The project would provide financial and logistic support for the in-service training of about 1,500 primary school teachers, about one fourth of the current primary teaching force, over the project period. Trainees would be drawn from the permanent teaching force of the MOE and selected on the basis of their commitment to the profession, their lengtk of teaching experience and their geographic representation. Implementation of the in-service training program would start in PY2 at the Mogadishu PTTI, with a first cohort of 300 teachers. This would be followed in PY3 by a second cohort of 150 teachers at the secondary boarding school in Galkayo and in PY4 by a third cohort of 150 teachers at the secondary boarding school at Baidoa. This phased program would establish an in-service training capacity of 600 teachers per annum in three geographic locations. 2.10 Career Incentivess Career incentives would be offered to teachers who successfully complete the four phases of the in-service course and pass the final examination. The incentive package would include (a) award of a Diploma of Primary Teaching, recognized as equivalent to the diploma awarded to graduates of the regular two-year pre-service program; (b) an increase of 1000 Somali Shillings in constant 1989 shillings, in the teaching allowance per month; and (c) a one-step raise in the civil service salary grade. The Governmert provided assurances at negotiations that this incentive package will become effective in July 1991 and will be implemented when the first cohort of the in-service teacher upgrading program graduates. 2.11 Career Development: In order to retain qualified primary teachers in the system and provide for their professional growth, the project would support the introduction of a number of changes in their eligibility for more advanced studies. During appraisal the MOE has, agreed to the following measures: (a) Qualified primary teachers (PTTI graduates) will become eligible for admission to the Lafole College of Education in order to obtain secondary teacher qualifications after a minimum of two years of service as a primary teacher. This eligibility will be extended to a minimum of four years of primary teaching service for PTTI graduates serving in the four project-supported regions. (b) Admission of qualifying primary teachers to Lafole College of Education will be limited to twenty percent of the College's yearly intake, beginning in 1990; Ic) Lafole College would introduce, starting in 1991, a special program for qualified primary school teachers designed to improve their proficiency in primary teaching. The quality of pre-service primary  - 18 - teacher training conducted at the Mogadishu PTTI would be improved by tightening the requirements for admission to at least completion of a grade 12 education and by maintaining the duration of the PTTI program at two years. The Government provided assurances at negotiations that these measures would be adopted and enacted by September 1990. In addition, in order to maintain the quality of the training program, the PTTI output will be maintained at its current level of about 450 graduates per annum. 2.12 Project Inputs: The project would finance all developmental costs associated with the in-service teacher training program. This would include five fellowships for four months each for TTD personnel (para. 2.06); honoraria for tutors and TTD staff; per diem and transport allowances for participants in the training workthops for tutors (para. 2.07, 2.08) and for teachers participating in the in-service upgrading programs (para. 2.09); the cost of training materials, field visits, and a vehicle to facilitate field based evaluations. To provide continuity in professional leadership for at least the first full cycle of the in-service training program, the project would provide for an externally-recruited teacher training specialist to help design the tutor training program (para. 2.07) and to coordinate the implementation of the first two years of the in-service teacher upgrading program (para. 2.05), through four annual visits of about three months each. In addition, a short-term consultant would be provided to assist in the evaluation of this program. TEXTBOOKS: 2.13 The project would provide funds and technical assistance for the preparation, procurement, storage and distribution of primary school textbooks and teachers' guides. Specifically, the project would finance the procurement, in four separate issues over a five year period, of about 1.6 million textbooks and 100,000 teachers' guides in 4 core subjects for grades 1 to 4, and in seven subjects for grades 5 to 8, and their distribution to all primary schools in the country. The project would also support qualitative improvements to textbook writing and manuscript preparation at the Curriculum Development Center (CDC) for secondary education. Staff training would be an important aspect of tne assistance provided for the textbook component. 2.14 Textbook Development: Textbooks and teachers' guides are written in the Somali language. For grades 1 to 4, where the curriculum consists of seven subjects, the project would provide textbooks and teachers' guides for four core subjects: Somali, Mathematics, Science and Social Studies. Two subjects, Islamic Studies and Arabic, would be covered by Government's own resources. Textbooks on Health Education have already been printed with USAID financing. In grades 5 to 8, where eight subjects are taught (the same as those for grades 1 to 4, plus Environmental Education), the project would provide textbooks and teachers' guides for all subjects except Health Education. For the entire primary cycle (grades 1 to 8) the project would provide for 44 textbook titles and 46 teachers' guides, to be distributed nation-wide to all primary schools, teacher training institutes and other institutions concerned with the project. At  - 19 - the school level, books would be allocated at the rate of one book for every two students, and teachers' guides at the rate of one guide per teacher for each subject. Textbooks would remain the Government's property, would be kept at the school in cupboards provided by the project and used by students during school hours. 2.15 The writing of textbook material and the preparation of manuscripts are carried out by the Curriculum Development Center (CDC) in Mogadishu. The CDC, created in 1964 and supported by IDA from 1979 to 1985 under the Third Education Project (Credit 738-SO), is the de-facto curriculum department of the MOE. It is adequately staffed and well equipped to carry out its functions of curriculum development, instructional materials preparation, the production of finished manuscripts and the printing of limited runs of instructional guides. The quality of its vork would be strengthened under the project through an in-country training program for about 60 professional and editorial staff to improve curriculum writing and updating and eight fellowships to train CDC staff on manuscript preparation for secondary school textbooks. The CDC has completed all manuscripts of 44 primary textbooks and 46 teachers' guides. The manuscripts completed so far are of acceptable coutent and quality, suitable for printing, but further improvements, particularly with respect to illustrations and layout, could usefully be applied to revised editions which are expected to be printed in 1993 and 1994. 2.16 Textbook Procurements Given the paucity of commercial printing facilities in Somalia, the bulk of textbook printing is expected to be done outside the country (para. 4.12). The books would be ordered from the printer in four batches, to be delivered in 1990, 1991, 1993 and 1994. Requirements for the first two batches are based on 1990191 enrollment projections and include a 30 percent allowance for loss and wear. The first batch of about 330,000 books for grades 1 to 4 would be delivered to Hogadishu in August 1990 for distribution to a:' primary schools within the next two months. The second batch of about 320,000 books for grades 5 to 8 would be delivered in August 1991, with the same delivery target. The third batch of about 450,000 books for grades 1 to 4, this time based on 1993 and 1994 enrollment prejections, would be delivered and distributed in August 1993, and a final batch of about 480,000 books for grades 5 to 8 would similarly be delivered in 1984. All book orders would include the appropriate number of teachers' guides, estimated to total about 100,000 copies. However, the actual number of books to be procured under each batch for distribution will be subject to review of smooth operational conditions prevailing in the country (para. 5.02). Books will be procured only for those administrative regions for which timely delivery, under the distribution procedures agreed with the government could be followed without hindrance (para. 2.17). 2.17 Textbook Distributions With respect to distribution of books to individual schools, initial requirements by district and by school have been carefully estimated. For ease of handling and distribution, books will be packaged by the printer in unit lots of 40 textbooks for grades 1 to 4 (10 sets of 4 books, to be shared by 20 students) and 35 textbooks for grades 5 to 8 (5 sets of 7 books, to be shared by 10 students) and  - 20 - delivered to Mogadishu in containe:s identified by district. The textbooks will be distributed by PMU vehicles from its Mogadishu warehouse to the district education offices, from which delivery to individual schools will be arranged by the District Education Officer and the respective headmast rs, using local transportation. To avoid loss of books during transportation, only PMU vehicles and drivers, accompanied by a MOE- assigned official, will be used for delivery to the districts. Books will be received in a public ceremony attended by district or regional officials and community representatives, and a public announcement of the event will be made over Radio Somalia. This is intended to demonstrate Government's commitment to improving the quality of education, stress the importance of textbooks in the learning process, and assure actual delivery of textbooks to the district-level authorities. The Textbook Distribution Board (a MOE entity which has been dormant over the past few years will be revlved for the purpose) will provide oversight of the entire process and evaluate the appropriateness or otherwise of the distribution system on an annual basis. In addition to these annual assessments, a formal mid-term evaluation of the mechanics of textbook procurement and delivery will be carried out in 1992, prior to the delivery of the third batch, and adjustments to the process made as necessary. 2.18 Cost Recovery: The project would introduce the concept of cost recovery for textbooks through a pilot operation in the Benadir region (Mogadishu area). It is suggested that students would be required to pay a user's fee for each book assigned to them for the school year. A local consultant, working with Community Education Associations (CEA) in the Benadir region pilot area, would be engaged to design a system for the collection and administration of the fees collected by the schools and of their ultimate use, including the setting up of a book fund to finance future procurement of books. The system would be implemented in the second year of delivery of books to the Benadir area schools. The results of this pilot operation and the feasibility of its application to other regions of the country would be evaluated after one year of operation and would be jointly reviewed by IDA and the Government. The Government provided assurances at negotiations that the pilot cost recovery scheme will be implemented in the Benadir area during the fourth year of project implementation, will be evaluated by an independent auditor, and the results jointly reviewed with IDA with the objective of extending cost recovery on a national scale. Institutional Development 2.19 The project would assist the MOE in strengthening its capacity for effective planning, management and administration of the education system at the central, regional, district and school levels. Project- financed assistance would focus on the following key departments of the ministrys 2.20 Planning: The planning department of the MOE is responsible for the collection and analysis of educational statistics and for the development of long-range plans and programs. The department routinely collects statistical information and uses computers for data analysis. An  - 21 - educational statistical yearbook has been published since 1969 and research of value to planners has been conducted. Despite this technical competence, however, the data collected and used may not be entirely reliable because schools are scattered over vast areas of the country, where roads are poor and communication difficult. Regional Education Officers and Headmasters who are responsible for data collection, compilation, and transmission to headquarters lack both training and motivation. 2.21 The project would attempt to ~orrect these deficiencies and would support activities aiming at (i) improving methods of data collection in order to enhance the reliability of educational statistics; (ii) upgrading the analytical abilities of MOE staff to use the data effectively; (iii) developing skills among MOE staff on using computers effectively and (iv) developing evaluation and monitoring capacities for sector wide and project-specific educational operations. The project would support two in-country workshops to train about 30 Regional Education Officers on methods of data collection. Four overseas fellowships, one each on educational statistics, educational planning, research and evaluation, and micro computer use would be awarded to Planning Department staff. Study tours for three senior officials, one on educational planning and two on evaluation and monitoring methods, would broaden the experience of senior department staff. 2.22 With respect to MOE staff development, the Planning Department would organize two workshops for 20 participants each focusing on computer programming and software use, and on applications for educational planning and programming. Participants would be computer users from the Departments of Planning, Evaluation and Research, Personnel and Financial Management, the Curriculum Development Center, the Project Management Unit and the National Examinations Board. To support this initiative, the project would provide technical assistance for up to six months to assist with computer installation and the development of training systems and programs. In addition, to strengthen the monitoring and evaluation process of the MOE, periodic technical assistance up to 12 months over the project period would be provided as well as basic equipment such as photocopiers and vehicles. 2.23 The project would also include three organizational studies, one in each successive project year, (i) on personnel management, (ii) on financial management and (iii) on organizational procedures and operations of the MOE. The project would finance externally-recruited experts to help conduct the studies, which would be carried out by the office of the Director-General of the MOE. 2.24 Financial and Personnel Management: The functions of personnel and financial management, currently under the Department of Admoinistration and Personnel, are expected to be re-organized under two separate Directorates: Personnel Management and Financial Management. The main problems facing the new departments include lack of trained staff, outdated operational methods and procedures, lack of storage facilities and lack of transportation.  - 22 - 2.25 To help address these problems, the project would support three in-country training workshops, one each for ti) personnel officers, (ii) financial administrators and (iii) accountants and storekeepers. Participants of each workshop, numbering about 20, would be drawn from both central and regional staff. The workshops would last about 20 days and would be organized by the Somali Institute for Development Administration and Management (SIDAM), an institution supported by the Fourth Education Project (Credit 1105-SO). The project would also finance three overseas fellowships and three study tours all on financial and personnel management. Finally, the project would provide the department with a microcomputer, photo-copying equipment and a vehicle. In addition, the project will assist the conduct of a census for MOE staff by 1990 (Annex 11 3:02). 2.26 Primary Education: The Primary Education Department (PED) is responsible for supervising the implementation of policies and programs relating to primary school management, curriculum, school mapping, and the provision of teachers and instructional materials. The department also monitors the deployment of teacherts and maintains pupil records. In addition, in collaboration with the Ministry of Justice, the PED assists in the training of Koranic teachers to promote the introduction of numeracy in Koranic schools. An important dimension of the PED responsibility is raising community awareness for primary schooling, through the establishment and support of Parent Associations. The project would assist the PED in carrying out these functions more effectively. 2.27 The objective of promoting effective local leadership and mobilizing community support for primary schools would be assisted through the setting up of Community Education Associations (CEAs). The CEAs would be a natural extension of the present concept of the Parent Association by broadening its membership and expanding its responsibilities (Annex 6). The CEAs would assist in raising awareness of the benefits of primary education among parents of school-age children, manage the parental and community contributions to primary schools, and assume some responsibility for the maintenance of school facilities. To improve achool attendance, the CEAs would be encouraged to promote the integration of the school and the community through regularly organized sports and other recreational activities. NGOs and other philanthropic organizations would be encouraged to assist this program. The formation of a Community Education Association, and its written agreement with the MOE to carry out its obligations vis-a-vis the community and support the primary school in question, would be a condition of project supported reconstruction program (para. 2.51). The effectiveness of this program would be closely monitored and its impact carefully evaluated by the Primary Education Department which would design and implement the community support program. To this end, Community Education Service (CES) would be established by the MOE within PED with one Principal Community Education Officer and four Regional Comuwnity Education Officers. The project would finance the allowances for the five CES staff as well as their necessary office space and vehicles. 2.28 The operational efficiency of the PED would be improved through the provision of basic equipment such as solar-powered calculators and  - 23 - small radio receivers for each headmaster (600 in total), typewriters for about 60 district education officers, duplicating machines and photocopiers for regional and central PED staff, and a vehicle for the Director of PED to supervise the implementation of the project-supported programs. Study tours for 2 senior PED staff would be provided to promote administrative and management capacities while in-country training in school management for headmasters, assistant headmasters and other regional staff would also be supported (para. 2.29). 2.29 School Managements Somali headmasters are essentially untrained and ill-equipped to assume an academic leadership role and manage the day- to-day business of the school. The project would assist the MOE in addressing this weakness by developing and delivering in-service training courses for assistant headmasters and headmasters. The assistant headmaster course would be about one month in duration and would cover the basics of school administration, instructional leadership, supervision and performance appraisal, personnel management, record keeping, and community relations. A one-month upgrading course for headmasters would focus on the new primary school curriculum. instructional supervision and school management. The MOE would establish within its Teachers Training Department a small School Management Training Unit (SMTU) to conduct and supervise this proposed program. 2.30 The project would finance overseas training and a study tour for two SMTU staff on school management and headmaster training. Following their return, they would develop the headmaster training course, and assisted by an externally-recruited expert (4 months), conduct two pilot courses for 40 assistant headmasters and 40 headmasters. The results of each course would be evaluated and appropriately revised courses conducted for 2 more groups of assistant headmasters and headmasters. The project would finance all costs associated with the development and delivery of these courses. The Government provided assurances during negotiations that it would introduce a policy and establish regulations, to be incorporated in the cenditions of service for Somali teachers and headmasters by July 1, 1992, requiring the successful completion of an approved headmaster training program as a condition for future appointment to the position of headmaster or assistant headmaster in primary schools. 2.31 Primary School Inspection: The MOE's Central Inspectorate is one of the key elements of quality control within the educational system. The major functions of the Central Inspectorate are to assess the educational standards and trends throughout the system, and to assure the maintenance of quality teaching and administration. An analysis of the inspectorate's performance suggests that there are several salient weaknesses: First, a specific administrative framework and operational procedures for the inspectorate are yet to be formulated and accepted by the MOE. Consequently, there are no clear guidelines regarding the responsibilities of those concerned with inspection and supervisiort (Headmasters, Inspectors, DEOs, REOs and MOE staff) and the inter- relationship between their roles. Second, inspectors lack professional training in school inspection. And third, regional inspectorates are immobilized by the lack of logistical support such as office space,  - 24 - equipment, and transport to visit schools. As a result, primary school teachers and headmasters are deprived of the benefit of supervisory services so essential to improve their classroom performance. 2.32 The project would support the development of a viable institutional basis for primary school inspection and supervision and would assist in: (a) developing an administrative framework with clear operational procedures within which the inspectorate would function; (b) developing in-country capacity for training inspectors and upgrading the professional competence of the regional and central inspectorates; and (c) improving the logistical base from which inspectors operate. 2.33 With respect to the administrative structure and operational procedures for school inspection, the project would provide a dxternally- recruited adviser on school inspection to assist the MOE's Chief Inspector in drafting proposals for an appropriate structure of the inspectorate, define the qualifications and duties of central and regional inspectors, set up procedures and regulations for school inspection and review requirements for staff recruitment, training and career development. 2.34 The capacity for in-country inspector training would be enhanced through two 9-month fellowships on inspection and short-term fellowships and study tours for up to 18 inspectors to other African countries with well developed systems of inspection. An inspector training program would then be designed, written and revised by a local team of three trained inspectors and three CDC specialists, assisted by the adviser on school inspection (para. 2.41). Annual training workshops would be held for approximately 35 participants, drawn from central inspectors, regional inspectors, and district education officers. Topics would include educational planning, school management and supervision, student assessment techniques, curriculum development, and recommended operating procedures and methods for the collection of statistical information. 2.35 To improve school inspection and management at the regional and district levels, the project would finance logistical support which would include office space, equipment and furniture for four regional inspectors and 17 district education officers. In addition, the project would provide vehicles for primary school inspection and management, which would be shared by regional and district education officers, inspection and community education officers and would also be used to distribute textbooks provided through the project. The effectiveness of this logistical support would be monitored and evaluated by the project management unit. 2.36 Examinations: Examinations are developed, produced, distributed and administered by the Somali Examinations Board (SEB). National examinations play a significant role in Somalia education. At the conclusion of primary education, students sit an examination which  - 25 - determines their eligibility for secondary education. This occurs similarly at the end of secondary education for determining their eligibility for admission to higher education. National examinations are also used as criteria for promotion of primary school teachers within the teaching profession. The nationally administered exams are the only existing measure of student performance currently available within the country. 2.37 The examination process lacks rigor and regulatory effectiveness, due to both staffing and organizational shortcomings of the SEB. The Board manually processes an estimated 45,000 examinations each year with about 16 professional staff who have no specific training in test construction and measurement and are not familiar with techniques of data manipulation. The Board is not integrated within the structure of MOE, but is attached as a separate unit to the Director-General of MOE making communications with other directorates of the Hinistry ineffective. The Board lacks administrative autonomy and its work program is hampered by a lack of resources. To strengthen the school examination system, the status of the Board would need to be raised, its mandate clarified and an adequate budget allocated. The HOE has agreed to reconstitute the SEB as a National Examinations Board (NEB) with a clearly established mandate and its own budget. The government provided an assurance to this effect at negotiations (para. 6.03). The new Board would formulate policies relating to examinations, select members of the examination panel, evaluate the standard and procedures for examination, monitor and guide the activities of its secretariat, recommend and appoint staff, and authorize the budget proposal of the secretariat. The Board would comprise members drawn from the senior staff of the MOE, and from the University and would be chaired by the Director General of MOE. The NEB's operational arm would be its secretariat which would have four sectionss test development and research; examinations administration; data processing, records and archives; and general administration. The secretary of the NEB would function as the chief executive of the secretariat. 2.38 The project would support the secretariat of the NEB by providing for overseas training and in-country workshops for secretariat staff and for computers and office equipment to speed up the production, correction, and analysis of test results. 2.39 With respect to NEB staff development, four three-week workshops would be conducted, with the assistance of project-financed expatriate specialists. The first workshop, for NEB staff and external examiners, would cover the basics for conduct of examinations such as test development and administration, marking, processing and grading. The second workshop, for 30 participants, would concentrate on techniques of marking of examinations; the third workshop for 15 participants would focus on processing and grading of examination results; and the fourth workshop would focus on research and evaluation methods in relation to educational measurements. Two overseas fellowship of 9 months each would be awarded: one in testing and measurement and one in evaluation techniques. Following the return of the fellows to Somalia, a fifth workshop would take place on test construction and examination development in five subject areas:  - 26 - mathematics, sciences, humanitiesisocial sciences, language arts and teaching education. Expatriate specialists in each of the five subject areas would work with ten Somali examination setters for a 30-day period to produce sample examinations in each subject area for the primary school leaving examination, secondary school leaving examination and the teacher promotion examination. 2.40 The operational efficiency of the NEB staff would be raised through (a) study tours of the Chief Executive of NEB and a senior staff member on organization and management of examination boards in three developing countries; (b) provision of computers and office equipment for improving the efficiency of processing, distributing and storing examination results and (iii) training of NEB staff on a data base management system for handling examination results. 2.41 The project would finance all local costs of conducting the in. country workshops and short-term technical assistance for NEB staff development and examination preparation (pare. 2.39), overseas fellowships and study tours for NEB senior staff (par&. 2.40) and computers, office equipment, and a minibus for transporting NEB staff. Physical Rehabilitation 2.42 A decent teaching environment responding to the pedagogical needs of learning and to the biological and emotional needs of the children plays an important role in raising the level of student performance. However, in Somalia, most of the primary schools are dilapidated requiring substantial rehabilitation work or outright replacement and act as a deterrent to pupil attendance. About one quarter of the schools are Arish structures, mainly located in rural areas. They are built of vegetal matters such as branches, leaves and mud; are open to weather; are dusty and dirty; and do not provide a suitable teaching environment. The remainder are Daar* buildings which use local stone or cement block as building materials. Most of the Daar schools were built during an intensive community self-help campaign (1975-77) and suffer from inappropriate structural design, poor workmanship and use of low quality materials. 2.43 As part of its effort to revitalize primary education and to provide a decent teaching environment, the Government has decided to rehabilitate its primary schools with more permanent buildings, in phases, over a 10 to 15 year period. The proposed project endorses this initiative and provides funding and technical assistance to achieve two main goals. First, strengthening MOE's capacity to implement and manage a large-scale nation-wide construction and maintenance program for its schools and other educational facilities; and second, supporting on a limited scale, a physical rehabilitation program, in four of eighteen administrative regions of the country. 2.44 Strengthening Institutional Capacity for Construction: The School Building Unit (SBU) of the MOE carries out construction and maintenance of its school buildings and other educational facilities.  - 27 - The SBU is, however, unable to do so adequately because of staff shortages, insufficient funds, lack of equipment and lack of expertise. To strengthen MOE's capacity in this respect, the project proposes the establishment of an Education Facilities Section (EFS), initially to be located within the PMU. The EFS would be staffed by existing PMU staff with experience in implementing civil works programs gained under previous IDA projects, supplemented by less-experienced staff seconded from the SBU. The project would provide long- and short-term technical assistance to support the EFS (para. 2.49). By the end of project implementation (1995), when the EFS is expected to have acquired the capability of implementing and managing school construction and maintenance, it would be re-integrated within the MOE, effectively replacing the existing SBU. At negotiations the Government provided assurances to this effect. 2.45 School Reconstruction/Rehabilitaticn. The project will assist rehabilitation or new construction of 120 primary schools in four administrative regions (Lower Shebelle 73, Middle Shebelle 15, Bay 21 and Gedo 11,. Out of about 240 schools listed within MOE, School mapping surveys conducted iu the four regions to be assisted by the proposed project indicated that only 175 schools of the 240 schools listed are actively functioning; the remaining have closed. The 120 schools retained for project support have been chosen on the basis of three criteria (i) all schools in communities with a high concentration of population; (ii) schools with a lower concentration of population, but a stable enrollment of at least 160 pupils and (iii) one school per district irrespective of total number of pupils in attendance. 2.46 IDA assistance would be provided for 105 primary schools in three administrative regions. The fourth region (Middle Shebelle) will be assisted by UNCDF under a cofinancing agreement (para. 3.06). The IDA Credit would finance the total cost of construction materials, labor and site supervision, and furniture and equipment as follows: (a) rehabilitation of 430 classrooms at 105 existing schools; (b) construction of 648 new classrooms at 105 existing schools including the replacement of ARISH structures; (c) additional civil works at the 105 school sites including 71 storage rooms, 57 headmasters offices, 105 staff houses, 105 covered community spaces, 89 water supply systems, 315 new latrine blocks and 86 site works. In addition the project would finance the construction/rehabilitation of 2 storage warehouses for the PMU and MOE, construction of 13 DEO and 3 REO office and stores, extensions to the PMU offices, rehabilitation and supply of furniture to the Primary Teachers Training Institute (PTTI) and Institute of Wnmens Education (IWE) in Hogadishu, and minor repairs and furniture for secondary schools at Galkayo and Baidoa (para. 2.09). 2.47 The UNCDF-financed rehabilitation works would be undertaken in Middle Shebelle Region for 15 primary schools. The work would be carried out by the PMU, under UNCDF procedures. UNCDF would finance the total cost of construction materials, furniture and equipment as followst (a) rehabilitation of 97 classrooms to 15 existing schools; (b) construction of 55 new classrooms to 15 existing schools; (c) additional civil works at 15 existing schools would include 11 storage rooms, 6 headmasters offices,  - 28 - 15 headmasters and 15 teachers houses, 15 covered community spaces, 11 water supply systems, 45 latrine blocks and 14 site works; (d) construction of 1 REO office and 4 DRO offices and (e) the supply and running costs of 4 vehicles for PMU and site supervisory staff. The impact of the provision of houses for headmasters (and teachers with respect to the UNCDF component) on teacher performance and teaching quality will be evaluated. For this both UNCDF and IDA has made joint provisions for conducting baseline survey, midterm and post evaluation. 2.48 Sequencing of Activities: The rehabilitation of educational facilities, including planning, design, construction and rehabilitation, would be conducted by the EFS and will adhere to following sequence of activities. - conduct school mapping surveys to update information on their physical condition and determinke requirements for repairs and maintenance (EPS); - prepare annual work programs for construction and rehabilitation taking logistics, available resources and budget&ry criteria into consideration; program in the first year of construction a pilot project in Afgoye district, Lower Shebelle, which would, by appropriate contract packaging determine the procedure for the remainder of the construction program (EFS); - evaluate local building materials and construction designs for their suitability to local conditions and to community contribution (EFS); - establish norms and standards for construction, rehabilitation and maintenance of schools and prepare manuals for the use of the CEA and school principals (EFS); - implement the annual construction and rehabilitation program through procurement of building materials, supervision of contractor's work and provision of technical assistance to communities; and - monitor and evaluate all rehabilitation activities, provide feedback on the progress of implementation, and propose adjustments accordingly (EFS). 2.49 On an experimental basis, the EFS would establish four mobile building teams (MBT) made up of a site supervisor/foreman and two skilled artisans who would conduct some site supervision, provide training to the communities in simple building techniques and further training to the communities for long term on-going maintenance to primary school buildings. Five Construction Supervisors (two for Lower Shebelle and one each for the other regions) would inspect and report on the physical condition of schools, supervise construction and assist the CEO with the mobilization of community inputs for rehabilitation work and their future role in a long term maintenance program. Four Regional Engineers, located at the P1U,  - 29 - would be responsible for overall supervision of the construction program in each of the four regions, supervision of the regional work force, preparation of bidding documents, preparation of bills of quantities, evaluating bids, and assisting in the procurement of imported building materials. 2.50 The project would provide technical and logistic support to the EFS as follows: (a) 24 man-months of architect's services to help set up the EFS, provide guidance to EPS staff in all aspects of design, document preparation, construction and rehabilitation of educational facilities, work programming, procurement of building materials, on the job training; they could also arrange training courses for local staff and design school furniture suitable for primary children; (b) operating costs for 4 Regional Engineers, 5 Construction Supervisors and 4 Mobile Building Teams; (c) two fellowships for senior EFS staff to visit similar projects in the region and to attend a one onoth UNESCO-conducted course on educational facilities in Dakar or Abidjan; (d) locally conducted training courses of 30 days for 4 Regional Engineers and 5 Construction Supervisors and 15 days for 12 staff of the Mobile Building Teams. 2.51 The Community Education Associations (CEA) would contribute to the rehabilitation program according to their limited capacities. CEA involvement would be supplementary to the rehabilitation work to be carried out at each primary school. CEA's would be expected to provide, under the supervision of the MBT's, a regular supply of drinking water to school tanks, new site walling or fencing, watchmen facilities, site clearance and landscaping, provision of suitable access and internal roads, parking areas and recreatioral facilities such as sports fields. The CEA's long term involvement in the rehabilitated works would commence after the contractor's contractual liability has lapsed. A pilot project for CEA training in simple building techniques and maintenance procedures, will be set up with the ultimate intention of providing a community-based maintenance provision for each site, where the long term responsibility for school maintenance would be that of the community. The government gave assurances at negotiations that for a community to become eligible for assistance under the rehabilitation program (i) a Community Education Association (CEA) would be established for each primary school; (ii) the CEA in that community would be active and functioning; and (iii) a contractual agreement would be signed between the CEA and MOE with respect to specific functions and contributions to be provided by the community (Annex 6). 2.52 The bulk of the construction program would not start until the third year of the project. This would allow the Community Education Associations (CEA's) to become fully institutionalized and provide the community-at-large an opportunity to demonstrate their commitment to primary education. The interval should also enable the EFS to become fully operational and therefore capable of undertaking such large scale rehabilitation work. Evidence of satisfactory progress of EFS should be available prior to commencement of construction program.  - 30 - 2.53 During the first two years of the project relatively minor physical works, considered essential for effective startup and for achieving the main institutional development objectives of the project, would be carried out. These would consist of extensions to the PMU office, minor renovations at the PTTI and the Institute of Women's Education, and rehabilitation of the warehouse, all located in Mogadishu. Commencement of construction work in the four project areas will be subject to a review of operational conditions prevailing in the country (para. 5.02). Should any of the regions become subject to civil disturbance, preventing the construction/rehabilitation program to be carried out efficiently, consideration would be given to relocate the program to a more secure region. In this case, however, a mapping survey would need to have been completed (para. 2.48). PROJECT MAMGEMENT UNIT 2.54 The responsibilities of the Project Implementation Unit (PIU), established under the First Education Project (Credit 247-SO), would increase considerably with this proposed project as a result of the large number of activities associated with textbook distribution on a national scale, a widely dispersed physical rehabilitation and school construction program and extensive requirements for technical assistance, training and fellowships. In addition, the unit would assume the task of coordinating and monitoring all educational activities financed by the project. To accommodate this expanded role, the unit would be significantly strengthened by additional staff and operating resources, and provided with long-term technical assistance. The unit would be renamed the Project Management Unit (PMU) and given higher status in the Government's hierarchy. During negotiations, the Government provided assurances that the Project Management Unit, to be established under the project, would be given the mandate of coordinating all physical implementation and educational aspects of the project, and would be provided with the required resources and funding. 2.55 To help the new PMU assume these more demanding responsibilities, the project would finance three long-term technical expertss an education implementation adviser (educator), responsible for coordinating and monitoring all educational activities carried out by the various MOE departments in the context of the project; an educational facilities adviser (architect) to help set up a new educational facilities section in the PMU and to coordinate all physical implementation activities of the project; and an accountant/procurement adviser, to help coordinate the increasingly complex accounting, disbursement and procurement activities the PMU will be required to handle. The project would also finance all incremental operational costs of the PMU, including vehicles for site supervision, materials, and transportation; the construction of an annex to the PMU office to house the newly-created educational facilities section, the refurbishing of existing warehouses where required, and the construction of a book depot in Mogadishu. Funds would also be provided for the training of new and upgrading of existing PMU staff.  - 31 - III. PROJECT COSTS AND PIRANCING PLAW A. Cost of the Prolect 3.01 Although the project has been designed to be implemented over a five year period, it has been costed over a seven-year period which corresponds to the standard disbursement profile in Somalia. Total costs of the proposed project are estimated at So.Sh.101.9 billion (US$32.5 million equivalent). Base costs are calculated at US$26.2 million equivalent (80X) and contingencies at US$6.3 million equivalent (202). Foreign exchange costs account for US$25.2 million or 772 of total project costs. Taxes and duties have been excluded in calculating the project cost. Project costs by expenditure category are summarized in Table 2 below, and details are provided in Annex 9. X 3.02 Project costs have been estimated at June 1989 prices and have been updated at negotiations. Cost estimates for civil works, furniture, equipment and vehicles have been derived from contracts avarded for similar works and items in the Fourth Education Project and other projects financed by IDA. The proposed schedules of accommodation are functional, austere and appropriate for the proposed project objectives, as are the furniture and equipment. Project costs include provision for 318 months of overseas training; 84 months of long-term foreign/local consultants and 155 months of short-term consultancies. Approximately one third of the required technical assistance will be provided by qualified national consultants. Allowances, per diem, local training costs and operational and maintenance expenses are based on current Government scales and rates. 3.03 The total project costs include US$6.3 million equivalent for contingencies. Physical contingencies have been included at 15? for civil works and 102 for vehicles, equipment, furniture and instructional materials and amount to US$2.2 million equivalent (9? of base costs). The following price contingencies have been included: ti) on foreign exchange expenditures, 4.92 per annum for 1990 - 1995 and 3.6t for 1996 - 1999 and (ii) on local cost expenditures, 1102 for 1990; 552 for 1991; 362 for 1992; 242 for 1993; 20S for 1994; 152 for 1995; and 102 for 1996 - 1997, taking constant purchasing parity exchange rates into account. On this basis, price contingencies account for US$4.1 million equivalent or 162 of base costs. 3.04 The foreign exchange component of US$25.2 million equivalent is based on estimates of 852 for civil works; 1002 for vehicles; 1002 for instructional materials; 100? for equipment; 902 for furniture; 1002 for overseas training and study tours. The incremental recurrent costs cover equipment, furniture and building maintenance, fuel/oil/lubricants and vehicle operation and maintenance.  - 32 - Table 2 UIJCATIO UM h23.ZTAT3N PUOJc? mmmita ns mi t (.0. Me) (U 'COO) x Total I Ttal 2 Fomiso o 2 Forinm Ds Leed Foet Totl E1dww Cots Laie Fomin Tot Caus Costs 1. W fr cup A. Elva on 1357421.6 7.w.14 to447*70 65 V .5W.S 8,741.0 I.N21 15 3? . wnW - 21140.O 6MU1M4.0 10 3 - YO?.0 707.0 100 7 E. fIuI ;2 . 11S1 13 1.240.57.0 3 S 141.0 1t2f13 1409.7 to 5 D. ts7111T5L fAT MIU - 34M140.0 3J0.0A too 15 - 21,.4 .296 100 1 E. E fUIT - MA.M0 73,064.0 t1o 3 - 1l.1 669.9 100 3 F. lICIE I MUSt1EC - 17UI3320 1016e3.0 t00 I 243.0. 2,010.0 100 8 -. FtB5 11M 2MM.0 - 259b.0 - 1 302.2 - 302.2 - 1 H. tD5 236944*.0 2.3f94.0 - 10 2692.6 - 2692.*6 - 1 I. OV 5 13ID11B - 57,7020 570.0 100 4 - 974*7 974.7 too 4 J. IIWU * mEWI