Jordan - Fourth Education Project

Doe TheW MIC'ROFICUHE CoPY Report N'. . J81(.) TJy0 : T Py) FOR OM- ( (,IIAL, H / Xt.1727 OEDD1 Report No. 9834 PROJECT COMPLETION REPORT JORDAN FOURTH EDUCATION PROJECT (LOAN 2068-JO) AUGUST 28, 1991 Population and Human Resources Operations Division Country Department III Europe, Middle East and North Africa Regional Office 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.  ABBREVIATIONS GVSS - General Vocational Secondary School ICB - International Competitive Bidding LCB - Local Competitive Bidding MOE - Ministry of Education MOH - Ministry of Health MOHE - Ministry of Higher Education NPC - National Planning Council NPITI - Nursing/Paramedical Irbid Training Institute oSu - Oklahoma State University PIU - Project Implementation Unit (MOE) PMU - Project Management Unit (MOH) VTC - Vocational Training Corporation  THE WORLD BANK FOR OMCUL WE ONLY Washington. DC 20433 USA office of ODt,ecUfw.Gel, Op. atmns Evalutin August 28, 1991 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Project Completion Report: JORDAN - Fourth Education Proiect - (Loan 2068-JO) Attached, for information, is a copy of a report entitled "Project Completion Report: Jordan - Fourth Education Project (Loan 2068-JO)" prepared by the Europe, Middle East and North Africa Regional Office, with Part II of the report contributed by the Borrower. No audit of this project has been made by the Operations Evaluation Department at this time. Attachment This document has a restricted distribution and may be usel by recipients only in the performance of their official dulies. Its contents may not otherwise be disclosed without World Dank authorinzation.  FOR OFFICIAL USE ONLY PROJECT COMPLETION REPORT JORDAN FOURTH EDUCATION PROJECT (LOAN 2068-JO) TABLE OF CONTENTS Paae Preface ............................................................ l Evaluation Summary ................................................. ii PART I. PROJECT REVIEW FROM BANK'S PERSPECTIVE ........ O... **......... 1 2. Project Identity .............................. .1 2. Project Background ...... ....................1 3. Project Objectives and Description .... .............. 2 4. Project Design and Organization ..... ............... 2 5. Project Implementation ............................... . 3 6. Project Results .......................................... . 4 7. Project Sustainability ........................................ 5 8. Bank Performance ...... ..................... 6 9. Borrower Performance .......................................... 7 10. Compliance with Covenants ................. .. .................. a 11. Project Relationship .......................................... 8 12. Consulting Services ........................................... 8 13. Project Documentation and Data ..... ............... 9 PART II. PROJECT REVIEW FROM BORROWER'S PERSPECTIVE ......... ...... tO Table 1 ...................................................... 11 Table 2 ...................................................... 16 PART III. STATISTICAL INFORMATION . ........ . ... . . . . . . ............. ...... . 17 A. Tables 1. Related Bank Loans and Credits ................................. 17 2. Project Timetable .............................................. 20 3. Planned and Actual Completion Dates of Components .... .......... 21 4. Planned and Actual Technical Assistance.22 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.  Table of Contents (contd.) 5. Project Costs ......... ..................................... . . 23 6. Project Financing ........ . . .. . .... 24 7. Cumulative Estimated and Actual Disbursements ........... - . . ... 25 8. Allocation of Loan Proceeds .. . ........ ....................... 26 9. Compliance with Loan Covenants ...... .. 27 10. Estimated and Actual Enrollments and Graduate., by Project Component ....... ..... ......... .......... 29 B.Annexes I. Persons Met During Completion Mission . .30 II. Mission Data.... . .. ...... .... 31 III. Record of Quarterly Progress Reports Submitted ... .. ... 32  PROJECT COMPLETION REPORT JORDAN FOURTH EDUCATION PROJECT (LOAN 2068-JO) PREFACE This is the Project Completion Report (PCR) for the Fourth Education Project in Jordan, for which Loan 2068-JO in the amount of US$25.0m. was approved on December 15, 1981. The loan war closed on December 31, 1989, two years behind schedule. Actual disbursements amounted to USS 18.1m, about USS 6.9m. leas than the approved amount. Two cancellations in the amounts of US$3,576,000 and US$3,302,998 were made on December 31, 1988 and June 30, 1990 respectively. The PCR was jointly prepared by the Population and Human Resources Division of the Europe, Middle East and North Africa Regional Office (Preface, Evaluation Summary, Part I, Part III), and the Borrower (Part II). Preparation of this PCR was started in May, 1990 and is based, inter alia, on the Staff Appraisal Report, the Loan and Project Agreements, supervision reports, correspondence between the Bank and the Borrower, and internal Bank memoranda.  - iii - PROJECT COMPLETION REPORT JORDAN FOURTH EDUCATION PROJECT (LOAN 2068-JO) EVALUATION SUMMARY Proiect Obiectives 1. The design of this project followed closely the objectives of Jordan's 1981-85 National Development Plan with regard to education and training. The Plan put heavy emphasis on the accelerated fo-rmation of skilled workers and technicians, mainly through formal education. Accordingly, the project aimed to (a) meet what was identified as a critical lack of skilled workers and technicians required for industrial development of the south of the country; (b) ensure an adequate supply of subject matter teachers for general vocational and industrial secondary schools, and for vocational streams of comprehensive schools and trade training centers; (c) provide increased general and occupational education by converting existing teacher training institutes into community colleges; (d) contribute to the ongoing increase of general vocational secondary schools and trade training centers; and (e) alleviate shortages of qualified paramedical, nursing and mid-wifery personnel required for the basic health-care programs. These objectives were pursued through investment in the components identified and appraised. (Part I, paras. 3.01, 3.02). Implementation Record 2. Project implementation proceeded, on the whole, according to the initial estimates. The only exception to this pattern was the Nursing/ Paramedical Institute at Irbid, whose implementation delays resulted in a 2- year postponement of the loan Closing Date (Part I, para 4.02). The"e was a significant shortfall in estimated final disbursements (from US $25.Om to US $18.1m - see Part III, Table 4), due to lower costs resulting from, inter alia, (a) rising foreign exchange rates and (b) strong competition among local construction firms. Furthermore, the multiplicity of public entities involved in the project's execution (Part I, para 5.03) resulted in lack of coordination and delays (but it did not prevent the eventual successful completion of all project components). Proiect Results and Sustainabilitv 3. Of the various project components, the VTC tr&ining center outside Amman, the technical teacher training program of Marka Polytechnic, and the two community colleges in Salt and Howwara function as planned, and are producing the expected benefits. Furthermore, these benefits appear to be  - iv - sustainable over the foreseeable future, on the basis of the quality of their managemant, institutional arrangements, and demand for their services. 4. In contrast, the expected benefits from the Tafilah Polytec.nic, the Irbid Nursing/Paramedical Institute, and the four General Vocational Secondary Schools have not yet realized their full potential, as anticipated at project appraisal: (a) Enrollments for technician training at the Tafilah Polytechnic are about 60% of the initial projections at appraiual, due to lack of local demand for its graduates and lack of dormitory space. In addition, due to the creation of the Ministry of Higher Bducation in 1985, and transfer of the Polytechnic under its jurisdiction (and also due to the establishment of a vocational secondary school in Tafilah), the initially planned enrollments of 200 secondary level technical students did not materialize (Part I, paras. 6.02, 7.03). (b) The nursing program at the Irbid Institute currently operates at about half its capacity. The reason is that strict requirements for practical training in local hospitals, combined with limited hospital facilities, keep student numbers low, despite the strong demand for qualified nurses (Part I, paras. 6.03, 7.04). (c) The Vocational Schools are also functioning at less than planned capacity. The schools do not generally offer the initially planned trade training courses (which are now almost exclusively offered by VTC). In addition, continuing education programs are also not operating at the levels initially anticipated (Part I, paras. 6.04, 7.05, 7.06). S. With regard to project sustainability, it is expected that the Tafilah Polytechnic, the Irbid Nursing/Parimedical Institute and the General Vocational Secondary schools will achieve their full potential in the future based on the demand for their services and specific changes in the way these institutions are operated (paras 7.02-7.06 refer). On the other hand, the vocational training center, the teacher training program at the Marka Polytechnic and the two community colleges function as anticipated at appraisal and are producing the estimated benefits. 6. With regard to the sustainability of the GVSSe, it should be noted that one of the objectives of the Human Resources Sector Investment project (Loan 3106-JO) which is currently under implementation, is to examine the future of the GVSSs in the context of a broader reassessment of vocational secondary education. To ensure adequate upkeep of project institutions the Government intends to pursue the recommendations for a maintenance program proposed in a maintenance study financed under the Seventh Education project (Loan 2890-JO). Ongoing technical assistance (financed under ongoing World  Bank loans for Jordan) is also facilitating the upgrading of teachers and the improvement of instruction in schools to ensure the sustainability and quality of programs. Lessons Learned 7. The project experience provides the following lessons: (a) Project risks, including those arising from exogenous factors, need to be ident' ied more conservatively. In the present case, the risks of a drastic slow-down in economic growth and of substantial underutilization of project facilities were not adequately highlighted (Part I, para 4.03, 6.02). (b) Project design should make special arrangements for supporting counterpart agencies with no previous involvement with Bank projects, especially in cases of complex projects such as this (Part I, paras. 4.02, 5.03, 9.03). (c) Proper timing, staffing, and personnel continuity of supervision missions are critical for effective and efficient project implementation (Part I, para.8.02).  PROJECT COMPLETION REPORT ,JORDAN FOURTH EDUCATION PROJECT tLOAN 2068-JOI PART I: PROJECT REVIEW FROM BANK'S PERSPECTIVE 1. Proiect Identity Project Name s Fourth Education Project Loan Number : 2068-JO RVP Unit t Europe, Middle and North Africa Region, Country Department III Country s The Hashemite Kingdom of Jordan Sector s Education Subsector : Technical and Vocational 2. Proiect Background 2.01 In the late 1970s and early 1980s Jordan's economy was growing at the rapid pace of 9% p.a. (the mining and manufacturing sentors were growing at 18% p.a.). The main determinant of high economic growth was the ability of the country to benefit from booming conditions in oil-exporting Gulf countries, by utilizing its better skillead labor force (in comparison to other countries in the region) in local production for exports to those countries and in lucrative temporary employment abroad. 2.02 The importance of labor skills for rapid growth of an otherwise resource-scarce country led the Government to invest heavily in training and education. The 1981-85 Development Plan allocated the equivalent of US $650m. to investment in education and US $30m. to investment in training (for a total of about 5% of GNP). 2.03 The principal priorities of the 1981-8S Plan with regard to education were to: (a) increase enrollments in secondary vocational education (grades 10-12) to 30% of total secondary school enrollment; (b) expand the provision of basic schooling (grades 1-9) from 91% to 94% of the corresponding age group; (c) expand the access of children from rural families to prepara- tory (grades 7-9) and secondary schools; (d) improve the ui3ality of education by means of adequate laboratories, equipment, teaching aids and libraries; and (e) expand technician education (grades 13-14).  -2- 2.04 The heavy emphasis on secondary vocational education was decided upon by Jordanian planners because of (a) doubts that nonformal vocational training would be acceptable by sufficient numbers of Jordanian families as the final stage of pre-employment academic activities for their children; and (b) awareness that the narrowness of Jordan's industrial base limited the potentia' for the required on-the-job portion of vocational training. 2.05 The Bank fvlly supported the Government's strategy in the sector, and wao prepared to continue its substantial participation in Jordan's educa- tion investment, following three previous projects in 1972-1979. 3. Proiect Obiectives and DescriRtion 3.01 The project aimed to (a) meet what was believed to be a critical lack of skilled workers and technicians required for industrial development of the south of the country; (b) ensure an adequate supply of rocational subject teachers for general vocational and industrial secondary schools, and for vocational streams of comprehensive schools and trale training centers; (c) provide increased post secondary general and occupational education by converting existing teacher training institutes into community colleges; (d) contribute to the ongoing increase of general vocational secondary schools and trade training centers; and (e) alleviate shortages of qualified paramedical, nursing and mid-wifery pernonnel required for the basic health-care programs. 3.02 In pursuit of these objectives the project included construction, equipment and furniture for: (a) a new Polytechnic in the southern town of Tafilah; (b) expansion and quality improvement of the technical teacher training program at the Marka Polytechnic; (c) conversion of the teacher training ochools of Salt and Howwara into community colleges; (d) four new general vocational secondary schools (GVSSs) around Amman; (e) a new vocational training center northwest of Amman; and (f) a new nursing/ paramedical institAte in Irbid (NPITI). The project also included specialist services and fellowships (under UNDP funding) aimed at better utilization of the physical components. 4. Prolect Desion and Oraanization 4.01 By following closely the objectives of the 1981-85 Development Plan, which emphasized the accelerated formation of skilled workers and technicians, mainly through formal education, the projec't was remarkably coherent despite the disparity and large number of its components, and the multiplicity of intervening agencies (Ministry of Educat..on (HOE), Vocational Training Corporation 'VTC), Ministry of Health (MOH), National Planning Council (N2C)]. Project identification took place in October 1979 followed by a preparation mission in September 1980. An appraisal mission was fielded in January 1981 and the loan became effective in June 1982.  -3- 4.02 In retrospect, the project design waa overly optimistic with regard to MOH's ability to implement its component on time. MOH's lack of experience with Bank supported projects, combined with site changes and related problems, contributed to major delays in the beginning stages of the construction and equipping of the NPITI. The establishment of a Project Management Unit (PMU) for the implementation of a Primary Health Care Project in 1985 speeded up the implementation process, but apparently it came too late to prevent the delays. 4.03 At the design stage, the exrectation that rapid economic growth would be a long-term phenomenon, particularly for the south of the country, fostered the strategy that coverage of remote areas by education facilities was desirable on grounds of decentralization and regional development, _ven if there was some underutilization of investment. This thesis led to the specific choice of location for the Tafilah Polytechnic, which resulted in the underutilization of the facility (see para 6.02). 4.04 In terms of organization, the implementation strategy addressed the issue of muVliplicity of executing agencies: the National Planning Council (NPC) assumed the role of coordinating agency, and the key staff of the three implementing agencies received specific training in management and procurement under the project. Project experience indicated that these arrangements were generally effective in fulfilling their tasks (see, however, para 5.03), even though lack of experience with implementing Bank projects at MOH did result in significant delays. Project coordination was facilitated by the ability of the Government to maintain stable management teams, and by the decision to place the UNDP-financed TA program under a single executing agency, the Bank. 5. Project I'plementation 5.01 Apparently based on the lessons learned from the previous three Bank-fina-ced projects, which took considerably longer than the %ppraisal estimate co be completed, a more realistic implementation schedule was establl 4ied for the project. The construction, furnishing and equipping of all institutions were originally scheduled to be completed by January of 1987, while the TA component was to be completed by June 1987, after five and a half years of implementation. Actually, construction of all project components was completed slightly ahead of schedule, except for the NPITI, the completion of which was delayed by approximately three years. Procurement of eq;ipm4ent and furniture for the MOE components took somewhat longer than estimated. It lagged behind by about 6-12 months, but was nevertheless completed before the original Closing Date. Ninety-five percent (95%) of the TA component was completed on schedule, but delayed nominations of two MOH short-term fellowships made it necessary for the TA contract with Oklahoma State University (OSU) to be extended to December 1988, about one year after the original contract closing date. 5.02 Another significant variation between initial estimates and actual outcome during implementation was project costs (estimated at US$ 50.9m, while  -4- the amount actually spent was US$ 30.8m). Due to the sharp increase in foreign exchange rates compared with domestic inflation and keen competition within the Jordanian construction industry, actual project costs declined significantly with no adverse effect on the achievement of project objectives. Approximately US$6.9 million in loan funds were unutilized and cancelled. 5.03 During implementation, the project teams of the MOE, VTC and MOH worked independently of each other, with the NPC (which later became the Ministry of Planning) responsible for coordination between the agencies. This detached nature of implementation contributed to the fact that the MOH did not fully benefit from MOE experience in executing Bank projects. Nevertheless, the project was generally well implemented and, except for the NPITI, its main componants were completed at an opportune time to assist the Government i meeting its major educational objectives. It should be noted, however, that, with the exception of MOH's lack of experience with the implementation process of Bank-financed projects, risks leading to implementation delays were not generally identified at the design and preparation stages (see paras. 6.01- 6.04). 6. Proiect Results 6.01 Several of the project's components function as planned, and are producing the expected benefits. Such is the case with the vocational training center outside Amman, the technical teacher training program at Marka Polytechnic, and the two community colleges resulting from the expansion of former teacher training schools. On the other hand, problems exist with regard to the expected demand for skilled workers and technicians in the south of the country (Tafilah Polytechnic). There have also been delays in alleviating shortages of qualifiad paramedical, nursing and mid-wifery personnel (Irbid Nursing/Paramedical Institute). In addition, there are some discrepancies between anticipated and actual utilization of the project's four GVSSs. (The general questions on the proper role of GVSSs, raised by the observed discrepancies, are discussed in paras. 7.05-7.06). 6.02 Regarding demand for skilled labor in the south, it is clear that the slackening of economic activity since the mid-80s has reduced such demand in general. Furthermore, existing industries in the south have developed their own training programs and/or hire graduates from other institutions. As a result, local industry appears indifferent to the potential of the Tafilah Polytechnic for upgrading its labor force. On the supply side, also, there have been variances from expected results. The Polytechnic was designed to offer technician training to 300 post-secondary students, and trade training to 200 (grade 10-11) secondary students. It actually has 180 post-secondary students for technician training, and 150 teacher trainees in Arabic language streams. The transfer of authority over the Polytechnic from the MOE to the Ministry of Higher Education (established in 1985) explains the absence of skilled-worker level trade training courses (which would make it difficult to attract adequate numbers of appropriate candidates in any case, in view of the existence of a recently built GVSS in Tafilah and the generally reduced demand  -5- for skilled labor). Initiatives have been made to utilize the Polytechnic's excellent facilities and equipment Zor offering 4-year post-secondary technology courses. Also, the absence of qualified candidates in Tafilah itself makes it necessary to provide dormitory space for out-of-town students. Existing dormitories can easily accommodate 200 and, if necessary, up to 300 students. 6.03 The Irbid Institute has begun operating following a 3-year implementation delay mentioned in para 5.01. However, its nursing program operates at less than half the planned capacity (Part III, Table 10) because strict requirements for practical training in local hospitals combined with limited hospital facilities kept student numbers low, despite the strong demand for qua.lified nurses. 6.04 Finally, the project'li four GVSSs function at considerably below their planned capacity regarding formal vocational education. The main cause of this appears to be that preparatory education was recently expanded to include grade 10 (and secondary education correspondingly limited to grades 11-12). In addition, the project schools do not generally offer trade training courses as planned (the few remaining programs are being transferred over to the Vocational Training Corporation). Furthermore, continuing education programs operate at a fraction of their initially foreseen size. The combined result is that the anticipated intensive use of facilities and equipment has not materialized. 7. Proiect Sustainabilitv 7.01 As noted in para 6.01, the vocational training center, the teacher training program at Marka Polytechnic, and the two community colleges function as expected and are producing the estimated benefits. These benefits appear to be sustainable over the foreseeable future, on the basis of the quality of their management, institutional arrangements, and demand for their services. 7.02 On the other hand, at project completion, the expected benefits from the Tafilah Polytechnic, the Irbid Nursing/Paramedical Institute, and the four General Vocational Secondary Schools were not realized to the extent anticipated at the design stage of the project. This does not mean that these components should be considered as failures and/or that all the factors which produced the current situation could or should have been foreseen at the design stage. Rather, the sustainability of almost all of these components can be assured, if some changes in the form of their operation are introduced as noted below. 7.03 The Tafilah Polytechnic can be utilized at or close to capacity if the Ministry of Higher Education makes a determined effort to promote it among local industry and to attract the necessary number of students from around the country. The latter may necessitate construction of some additional dormitory space, but first the existing space will have to be used to the maximum. Efforts to make the existing 2-year post-secondary technician program  -6- successful could be combined with the introduction of a 4-year technology program (in order to better utilize the school's excellent equipment and facilities) and continuation of the teacher training program mainly directed at Tafilah residents (in order to better utilize existing classrooms and to lessen the need for additional dormitory space). 7.04 The Irbid Nursing/Paramedical Institute will be fully utilized in a few years' time, even if current rigid requirements for practical training are retained, when two hospitals currently under construction are completed in the Irbid area. Full utilization can be achieved earlier if practical train- ing requirements are amended, without adversely affecting the qualifications of graduites. These amendments are already under discussion in the Ministry of Health. 7.05 The future of the four project GVSSs needs to be examined in the context of a broader reassessment of vocational secondary education. After several years of incremental investment, the Vocational Training Corporation has developed into a successful supplier of skilled workers. At the other end of the spectrum, there were in 1988, fifty-six (56) community colleges (35 public and 21 private) offering ninety (90) specializations at the technician/ para-professional level. Within this setting, it should be carefully examined what training needs GVSSs are meeting. This examination should take account of the fact that the cost per student of GVSSs is about double that of academic secondary schools as well as that unemployment among GVSS graduates is increasing. It should also include a review of the services provided by community colleges, and of their role as suppliers of skilled workers and technicians (a similar recommendation was been made in the Audit Report for the Third Education Project Loan 1781-JO). 7.06 If the decision is made to de-emphasize vocational secondary education, the benefits of the project's investment can be sustained (and even increased) by some re-arrangement of facilities. For example, some or all of GVSSs' equipment and specialized instructors could be transferred to VTC centers and/or community colleges; and the buildings could house secondary academic schools, for which there is ample demand. 8. Bank Performance 8.01 The most noteworthy feature of the Bank's performance in the initial stages of the project was the development, appraisal and acceptance of a project involving three separate government entities, interconnected through the NPC (which, as mentioned above, later became the Ministry of Planning). Although the risks affecting implementation and utilization of facilities were not totally identified at appraisal, Bank performance was satisfactory at this stage. A comprehensive identification of all the risks was difficult, especially during a period of rapid economic growth and acute skilled labor shortages, which was the case in 1981 when the project was appraised.  -7. 8.02 Although 18 supervision missiono have been reported (Part III, Annex II), about five of these missions were considered to be 'limited' supervision reviews carried out by only one staff member and for less than one week's duration. Given the complexity of project components, especially with regard to the NPITI, it would have been more efficient to field missions of a longer duration, composed of relevant education specialists particularly in the later years of project implementation, so as to facilitate follow-up actions and recommendations as well as identify issues for effective solution. Nevertheless, the Bank performed effectively during project implementation. On the whole, it acted efficiently as the executing agency in selecting and monitoring the consultants (Oklahoma State University) for the UNDP financed Technical Assistance component (see Sections 4 and 11). The management of the fellowship program by the Bank was demanding in terms of daily monitoring, administration and professional inputs. Nevertheless, the TA objectives were met to the satisfaction of the Government and UNDP. The Bank also responded promptly to the Government request to set up a Special Account and later on to increase the disbursement percentage for civil works and to finance mainte- nance mobile units for activities supplementary to the original project objectives. Requests for Closing Date extensions and various activities related to implementation, procurement and disbursement were also handled promptly. 9. Borrower Performance 9.01 The Government performed efficiently in expediting actions required for the planned project activities through loan Effectiveness. The Project Implementation Unit (PIU), which was established in the MOE for implementing the first three education projects, was strengthened by additional technical staff and eventually developed into the Directorate of Project Implementation. The project teams for the implementation of the VTC and MOH components were in place well in advance of loan effectiveness. 9.02 MOE and VTC performance regarding physical implementation was exemplary: consultant architects/engineers for the construction of all project civil works were appointed and equipment/furniture lists prepared on schedule. Suitable MOE and VTC fellowship participants to the TA component were nomi- nated in a timely manner. In contrast, physical implementation of the MOH component experienced the delays described in Sections 4 to 6 and the fellow- ship program was delayed by one year. 9.03 it should also be noted, however, that insufficient use was made of the Special Account (see Section 8). The first (and only) deposit in the Special Account took place in July 1986. At project closing 3 1/2 years later, less than half of that deposit had been expended. Normally, full replenishment of special accounts should occur every 4 to 6 months. Staff of the Procurement Unit did not take full advantage of a number of available procurement practices other than ICB. Local funds were adequately provided, except during the last two years of implementation, when the progress of  project activities was hampered by acute shortages of local funding due to the worsening economic situation. 10. Compliance with Covenants 10.01 Loan covenants were generally complied with satisfactorily although some difficulty was experienced with finalizing the refinement of the tracer system and related studies. Progress reporting was ragular and of good quality. Year-end financial statements were routinely received in fulfillment of the audit reporting requirement. 11. Proiect Relationship 11.01 Working relations between Bank missions and the project teams were excellent during project preparation and through the entire period of imple- mentation. In particular, relations between the Bank project team and the MOE Directorate of Project Implementation (which has subsequently grown into a larger General Directorate of Projects and School Buildings) were marked by a spirit of cooperation and mutual trust. That was also true of the VTC and the NPC. As a result, implementation of the MOE and the VTC components went smoothly and issues were quickly resolved as they occurred. 12. Consulting Services 12.01 Both of the main TA components--expatriate services in Jordan, and an on-campus training program at OSU for Jordanian participants--were in general executed on time and with satisfactory results regarding project objectivee. 12.02 One exception appears to have been training at OSU for MOH participants. Due to lack of the required training programs on campus, as well as in the Medical School of the University of Oklahoma, where some of the training courses were offered, trainees reportedly were placed in existing university programs which were not entirely compatible with their intended positions in Jordan upon their return. This shortcoming could be corrected in future projects if the Government included in TA contracts the condition that if a contractor does not possess the required training facilities and programs on campus, it would be obligated to find a subcontractor that specializes in such programs. 12.03 A different, and more general, problem also arose because of the apparent failure of Jordanian officials and OSU representatives in Jordan to brief prospective trainees in detail about training and living conditions in the U.S. The problem was compounded by a certain neglect of OSU staff to respond to the trainees' cultural sensitivities. As a result, many trainees felt personal frustration and disappointment, and their performance was probably less satisfactory than it could have been otherwise. Nevertheless,  -9- on their return to Jordan, the trainees were placed in positions relevant to their training. 13. Proiect Documentation and Datg 13.01 The appraisal report was well documented and a valuable tool for the HOE, KOH and VTC teams in implementing the project. The project working papers however were limited to only: (i) architectural and educational worksheets and, (ii) the TA schedule. Their usefulness is therefore restricted to civil works and TA. Data for the project completion report were readily accessible at the MOE and MOH, but data for the VTC component were not all available, as these records (eight years old) had been retired.  - 10 - PART II: PROJECT REVIEW FROM BORROWER'S PERSPECTIVE 1. Comments on Part I The preparation of this part is completely well carried out and wholly covering the various components of the project. Consequently, it is accepted and approved by the MOE as a borrower. 2. Bank Performance: Although the successive Bank Missions faced some difficulties in the initial stages of the project, especially in the appraising stage, which were due to the involvement of three separate government entities, and most of thn risks that affected implementation and utilization of facilities were not totally identified at appraisal, the MOE considers the Bank Performance as very satisfactory. 3. Borrower Performance: The Project Implementation Unit that was established in the MOE for implementing the first three education projects has implemented all the components of the project accurately and in a timely manner. But, in contrast, physical implementation of the MOH component experienced the delays in both, the construction and the fellowships, by one year. The civil works were appointed and executed, and equipment furniture were prepared and imported on schedule. The Technical Assistance component was prepared and fellowship participants and consultants were nominated in time. 4. Lessons Learned: The project experience provides the following lessons: (a) Project design is preferable to be made for each government entity separately. In the present case, there were risks as a result of the slow implementation of MOH as a counterpart. (b) Proper timing, staffing and supervision missions are essential for project implementation to be effective and efficient. (c) MOE has acquired the experience in executing Bank-financed projects as it is now fully aware of the Bank procedures.  - 11 - Part II Table 1, Page 1 Technical Assiatance Program Field of Duration Starting Ending Study In Month Date Date Forging & Pattern 6 29/05/85 22/11/85 Farm Machine 6 29/05/85 22/11/85 Tool & Die Making 6 29/05/85 22/11/85 Tool & Die Making 6 29/05/85 22/11/86 Sewing & Fash 6 19/08/85 15/02/86 Sewing & Fash 6 19/08/85 15/02/86 Child Care 6 19/08/85 15/02/86 Child Care 6 19/08/85 15/02/86 Diesel Mech 6 25/06/86 25/12/86 Commerce Ed. 6 25/06/86 25/12/86 Commerce Ed. 6 25/06/86 25/12/86 Commerce Ed. 6 25/06/86 25/12/86 Commerce Ed. 6 ' 25/06/86 25/12/86 Bookkeeping 6 25/06/86 25/12/86 Bookkeeping 6 25/06/86 25/12/86 Greenhouse 6 25/06/86 25/12/86  - 12 - Part II Table 1, Page 2 Technical Aseistance Proaram Field of Duration Starting Ending Study In Month D&te Date Dairy Prod. 6 25/06/86 25/12/86 Dairy Prod. 6 25/06/86 25/12/86 Nutrition 6 25/06/86 25/12/86 Beekeeping 6 25/06/86 25/12/86 Beekeeping 6 25/06/86 25/12/86 Telecommunic 6 01/01/87 30/06/87 Telecommunic 6 01/01/87 30/06/87 Instrument 6 01/01/87 30/06/87 Instrument 6 01/01/87 30/06/87 Beauty Cult. 6 01/01/87 30/06/87 Beauty Cult. 6 01/01/87 30/06/87 Nursing 6 01/01/87 30/06/87 Nursing 6 01/01/87 30/06/87 Horticulture 6 01/01/87 30/06/87 Horticulture 6 01/01/87 30/06/87 Mining/Drilling 9 01/06/85 28/02/85 Carpentry 9 01/06/85 28/02/85  - 13 - Part II Table 1, Page 3 Technical Assistance Proaram Field of Duration Starting Ending Study In Month Date Date Constructions 7 01/06/85 31/12/85 Architecture 6 01/06/85 30/11/85 Civil Engin. 6 01/06/85 30/11/85 Civil Engin. 6 01/06/85 30/11/85 Surveying 6 01/06/85 30/11/85 Surveying 6 01/06/85 30/11/85 Teaching Aids 7 19/08/85 16/03/86 Nutrition 6 19/08/85 15/02/86 Nutrition 6 19/08/85 15/02/86 Nutrition 6 19/08/85 15/02/86 Administration 2 14/09/85 09/11/85 Administration 2 14/09/85 09/11/85 Administration 2 14/09/85 09/11/85 Administration 2 14/09/85 09/11/85 Administration 2 27/02/86 27/04/86 Administration 2 27/02/86 27/04/86 Administration 2 27/02/86 27/04/86  - 14 - Part II Table 1, Page 4 Technical Assistance Proaram Field of Duration Starting Ending Study In Month Date Date Administration 2 27/02/86 27/04/86 Surveying 6 25/06/86 25/12/86 Workshop/Drill 7 01/06/86 31/12/86 Workshop/Drill 7 01/06/86 31/12/86 Mech. Workshop 7 01/06/86 31/12/86 Chem Workshop 7 01/06/86 31/12/86 Chem. Techni 7 01/06/86 31/12/86 Mech. Techni 7 01/06/86 31/12/86 M-ech. Techni 7 01/06/86 31/12/86 Lab Inst. Elec. 7 01/01/87 30/07/87 Workshop Elec. 7 01/01/87 20/07/87 Theo. Teac. Elec. 9 01/01/87 30/03/87 Curri. Devel. 6 19/09/65 15/02/86 Administration 1 14/09/85 15/10/85 Zngineer 8 13/01/86 14/09/86 Engineer 8 13/01/86 14/09/86 Adminiotration 2 14/09/85 09/11/85  - 15 - Part IX Table 1, Page 5 Technical Assistance PrograM Field of Duration Starting Ending Study In Month Date Date Administration 2 14/09/85 09/11/85 Administration 2 14/09/85 09/11/85 Administration 2 14/09/85 09/11/85 Comp. Progr. 1 14/09/85 15/10/85 Comp. Progr. 1 14/09/85 15/10/85 Comp. Progr. 1 14/09/85 15/10/85 Programming 1 01/11/86 30/11/86 Programming 1 01/11/86 30/11/86 Programming 1 01/11/86 30/11/86  - 16 - Part It Table 2 Teghnical Assistance Program School No. of Implomentation Starting Completion Students Period in Days Date Date 1. Annusha/F 1020 600 24/07/83 30/03/86 2. Arrusayfah/F 910 600 01/03/84 19/05/86 3. Arrusayfah/M 1920 780 05/12/83 08/09/86 4. Ajloun/M 1080 780 06/01/84 26/05/86 5. Tatileh Polytechnic 500 780 20/02/84 27/05/86 6. Amman Polytechnic 1200 300 16/03/83 02/04/84 7. Howwara Com. Col. 1316 300 19/04/83 19/02/85 8. Salt Com. Col. 1188 365 17/05/84 19/07/84  - 17 - PART IlIt STATISTICAL INEORMATIO TABLE 1. RELATED BANK LOANS AND CREDITS Loan Number Year Purpose of Project Proisect Title, MM: Comoonents, StatusiComments Cr. 285-JO 1972 Pur2o- Completed Education I Improve quality of educations increase supply of skilled manpower Comonentz 2 Compr. Sec. Schools 1 Polyt.and teacher trg. center 1 Teacher Training Institute TA for inctit. support, curric. devel., teacher trg., tracer system. Cr. 534-JO 1975 puXa2se Completed Similar to Education I. 1 Polytechnic 3 Compr. Sec. Schools 1 Trade Training Center 1 Hotel Training School 1 Rural Devel. Center TA for each component. Lp. 1781-JO 1979 Pur2w e Completed Education III Similar to Education I. comnonents 5 Compr. sec. Schools 1 Teacher Trg. Institute 1 Community College 1 Training Complex 8 Mobile Units TA for evaluation mechanism, computerized MIS for MoEp project institutions; project mgt. support.  - 18- Table 1 (contd.) Loan Number Year Purpose of Project Proiect Title A2pr. Componants Status/Comments Ln. 2246-JO 1983 Purpose Completed Education V Increase supply of skilled manpower; provide access to basic schooling for nomadic populationst strengthen MoE. Components 15 Gen. Voc. Sec. Schools 3 Centralized Prep. Schools TA to train instructors; strengthen the MOE; prepare a possible follow-up project. Ln. 2378-JO 1984 Purpose Progress satisfactory Education VI Expand facilities for compulsory and secondary Schools. Comoponents 31 Compulsory Schools 16 Gentral Secondary Schools 48 Laboratories 50 Multipurpose Workshops 49 Libraries TA Related to the Project. Ln. 2633-JO 1985 Pur2202 Progress satisfactory Nanp.Development Assist priority marnpower development programs. Components 4 VTC Training Centers (new) 2 VTC Training (expan -ons) 1 Occup. Safety and BH.dth Instit. TA to Institute of Public Admin. and Min. of Health. Ln. 2531-JO 1985 Puroose Seven health centers Primary Health Reorganize Primary Health were cancelled. Care Care (PHC). Progress is Components satisfactory. 25 New PHC Centers 9 Refurbished PHC Centers 17 Comprehensive Health Care Centers Training for Personnel WorkSig in Project Facilities.  - 19 - Table 1 (contd.) Loan Number Year Purpose of Project Proiect Title AODr. Components Statue/Comments Ln. 2870-JO 1987 Purg2se Progress satisfactory. Education VII Improve quality and expand coverage of compulsory education. Components 58 Compulsory Schools 3 Pilot Teacher Resource Centers Extensions to Existing Schools TA for better school maintenance; developing in-service programs; strengthening MoE MIS; assisting MoHE to devolop curricula, courses, materials and evaluation methods for community colleges. Ln. 3106-JO 1989 Iunooo Human Resources Support the first four-year Progress satisfactory. Development phase of the Government's Education Reform Program. Comnoonents Restructuring the School System. Improving the Quality of Teaching and Learning. Institutionalizing the Capacity to Sustain Sectoral Reform.  - 20 - TABLE 2 . PROWECT TIMETABLE Planned Revised Actual Actlvity Date Date Date Reconnaissance 7/79 7/79 Identification 9/79 10/79 Preparation 9/80 Appraisal 1/81 -- 1/81 Post Appraisal 5/81 Post Appraisal 11/81 Loan Negotiations 9/21/81 -- 9/21/81 Board Approval 12/15/81 -- 12/15/81 Loan Signature 1/20/82 -- 1/20/82 Loan Effectiveness 4/20/82 6/17/88 6/17/82 Project Completion 6/87 6/88 9/89 Loan Closing 12/31/87 12/31/88 12/31/89  - 21 - TABLE 3. PLANNED AND ACTUAL COMPLETION DATES OF COMPONENTS Months of Planned Actual Components Completion Completion Delay givil Worke Ministry of Education 1/87 9/86 -4 Vocational Training Corp. 7/84 7/84 0 Ministry of Health 1/87 9/89 32 Furniture and Eouigment Ministry of Education 10/86 12/87 14 Vocational Training Corp. 4/84 4/84 0 Ministry of Health 10/86 9/89 35 Technical Asiestance Ministry of Education 4/86 12/87 20 Ministry of Health 6/87 12/88 18 Note: The delays in physical implementation of the MOH component were due to the initial difficulties in identifying an appropriate site at Irbid for construction of the Nursing/Paramedical Institute. Further delays resulted subsequently from the need to revise the design of the foundation, after the initial design was reviewed by Bank staff.  - 22 - TABLE 4. PLANNED AND ACTUAL TECHNICAL ASSISTANCE (Staff Months) MoE (includino MoHEI No Fellowshilp Planned (in SAR) 594 53 Actual 394 73 O Actual/Planned 66 138 Specialist Services Planned (in SAR) 37 27 Actual 24 27 % Actual/Planned 65 100  - 23 - TABLE 5. PROJECT COSTS (US S million) Estimated Costs Actual Costs Category Local Foreign Total Local Foreign Total Construction 18.0 14.0 32.0 9.5 8.8 18.3 Professional Services 3.0 0.0 3.0 2.5 0.0 2.5 Furniture & Equipment 2.0 11.0 13.0 0.1 7.8 7.9 Technical Assistance 0.6 2.3 2.9 0.0 2.1 2.1 Total 23.6 27.3 50.9 12.1 18.7 30.8 1/ Including contingencies.  - 24 - TABLE 6. PROJECT FINANCING (US$ million) Estimated Financing Actual Financing Category Govt. IBRD UNDP Total Govt. IBRD UNDP Total Construction 21.0 11.0 -- 32.0 10.2 8.1 -- 18.3 Professional Services -- 3.0 -- 3.0 0.3 2.2 -- 2.5 Furniture & Equipment 2.0 11.0 -- 13.0 0.1 7.8 -- 7.9 Technical Assistance 0.6 -- 2.3 2.9 0.0 0.0 2.1 2.1 TOTAL 23.6 25.0 2.3 50.9 10.6 18.1. 2.1 30.8  - 25 - TABLE 7. CUMULATIVE ESTIMATED AND ACTUAL DISBURSEMENTS (US Million) Bank Fiscal Year 1983 1984 1985 1986 1987 1988 1989 1990 SAR Estimates 1.00 3.70 10.30 18.20 24.10 25.00 Actual 0.73 2.90 6.12 13.36 17.99 19.42 19.42 18.12 4] % Actual/Estim. 73 78 59 73 75 78 78 73 Date of Final Disbursement: October 25, 1990 1/ Actual disbursemento appear to be lower in FY 90 than in FY 89 because unspent funds in the Special Account amounting to US $1.3 m. were returned to the Bank after project closing. Time Chart of Initially Estimated. Revised and Actual Disbursements  - 26 - TABLE 8. ALLOCATION OF LOAN PROCEEDS (US$ equivalent) Original Actual Category Allocation Disbursement 1A Civil Works, parts A,B,C & D 5,900,000 7,325,823 1B Civil Works, part F 800,000 772,677 1C Civil Works, part G 1,200,000 0 2A Equipment & Furn., parts A,B,C & D 5,500,000 6,151,463 2B Equipment & Furn., part F (El-Basha) 1,200,000 972,542 2C Equipment & Furn., part G (Irbid) 1,000,000 15,762 2D Equipment & Furn., part H 0 632,135 3A Services & Consult., parts A,B,C & D 1,700,000 1,816,364 3B Services & Consult., part F 300,000 376,662 3C Services & Consult., part 0 300,000 57,574 4 Unallocated 7.100.000 0 TOTAL 25.000.000 18,121,0021 1/ Total cancelled amount after project closing: USS 6,878,998. (First cancellation, effective December 31, 1988, was US$ 3,576,000; second cancellation, effective June 30, 1990, was USS 3,302,998.)  - 27 - Table 9. COMPLIANCE WITH LOAN COVENANTS Section Covenant Compliance Statua 3.02 Borrower shall submit to the The T.A. component under Bank, not later that 12-31-82, contract with Oklahoma detailed qrrangements for State University was implementation of the training completed by Dec. 31, 1988. programs under the project. 3.03 (a) Project Unit to have necessary Satisfactory powers and staff for execution of project. 3.03 (b) VTC to designate appropriate specified staff for implementation of its project components. 3.03 (c) MoH to designate appropriate specified staff for implementa- tion of its project components. 3.04 Borrower shall continue to employ satisfactory architec- tural and engineering consul- tants to assist in relation to construction of project facilities. 3.05 Borrower shall employ suitable specialists to assist with software aspects of the project. 3.09 (a) Borrower shall establish for each Community College an advi- sory committee on curriculum development and a department of continuing education, at least six months before the opening of each College. 3.09 (b) Borrower shall submit detailed The Central Curriculum programs ror continuing educa- Committee organized a tion and for proposed system of system for Institutional evaluating the effectiveness of Development. Refinement of the Colleges, six months before the system is ongoing. their opening.  - 28 - TABLE 9 (contId) Section Covenant Compliance Status 4.02 (b) Borrower shall furnish annual Financial statements were audit reports within eight provided annually. months following the end of each fiscal year. 4.03 (a) MoE to extend the application MOE developed a tracer system of existing tracer system to for its program. graduates of project facilities. 4.03 (b) VTC to develop and apply a Tracer network comprising tracer system to graduates of center-based units and central the project training center. service has been established. Some analysis of VTC graduates was carried out. 4.03 (c) MoH to develop and apply an MoH has begun to develop a appropriate tracer system to tracer system using a sample graduates of Nursing/Paramedical of graduates from 1975 Institute. onwards. Refinement of the system is still in progress. 4.03 (d) MoZ, VTC and MoH to provide Bank Refinement of the system with annual reports on results not fully completed and obtained from tracer studies for annual reports were not five year period following first prepared. graduation.  - 29 - TADBLO 1. ESTIMATED AND ACTUAL ENROLLMENTS AND GRADUATES. BY PROJECT COMPONENT Enrollmento | Outputs | New Existing | Project Component I I ISAR |Actual ISAR |Actual I SAR Actual I I A. MOE I I I l.Tafilah Polytech. | I - Technicians | 300 203 - _ | 150 91 - Trade Training | 200 0 - - 100 0 - Teacher Trainingl 0 117 - - | 0 41 I i 2.Teacher Training | I Marka | 740 658 160 1083 I 300 425 I I 3.Commun.Colleges(2)1 945 1827 335 382 I 600 1555 I I 4.GVSS (4) I I - Regular program 13810 1399 - 1270 980 - Trade training 11120 528 - | 560 397 B. VTC I I I i l.Trade Training I I Center I 600 600 - 500 500-600 I I I I C. MOH I 1.NPITI | 700 214 - | 285 57 _ _ _ _ _ _I _ _ _ _ _ _ I __ _ _ _  - 30 - ANNEX g PERSONS MET DURING COMPLETION MISSION Ministry of Education Mr. Awni Maori, Secretary General. Mr. Barakat Tarawneh, Director General, Projects and School Buildings. Mr. Yahya Kisbi, Director, Engineering Affairs. Mr. Mohammad Abu-Sal, Director, Projects. Mr. Yssa Shaban, Director, Planning. Mr. Hassan Osta, Director, Academic Education. Mr. Mohammed Atiyyah, Chief, Technical Assistance Division. Mr. Hussein Shehadeh, Chief, Procurement Division. Mr. iadelaziz Hindawi, Chief, Supervision Division. Mr. Omar Souber, Chief, Design and Studies Division. Mr. In'am Daghistani, Engineer, Engineering Affairs. Mr. Raiq Aseria, Head, Tracing Unit. Mr. Khalil Qatamsheh, Assistant Director, Tafilah GVSS Ministry of Health Mr. Mahmood Shahid, Mrs. Salma Husein Shuqair, Director, NPITI. Ministry of Hiaher Education Mr. Al-Rousan, General Director, Community Colleges. Mr. Ayesh-Ayesh, Chief, Curricula Division. Dr. Abdel Hadi Ahmad Abdel Hadi, Dean, Tafilah Polytechnic. Ministry of Plannina Mr. Nabil Sweiss, Deputy, Secretary General. Mr. Ibrahim Jelal, General Director. Mr. Kamal Kakish, Director Social Sectors Mr. Hani Abu-Al Ghanam, Assistant Director Mr. Mahmoud Rawashdeh, Assistant Director Health Sector Mr. Kamel Shahatit, Chief, Manpower Division. Mr. Husein Al-Hatib, Manpower Division Vocational Trainina Cornoration Mr. Ahmed Atwan, General Director. UNDP Dr. Ahmed Attiga, Resident Representative.  - 31 - ANNEX II MISSION DATA Type of Date Number aund Spevialty St.orf W&eeks Mlix.<ioll (Month/Year) oT Participants a/ iri the Field Reconnaissance 7/79 1 (E) 0.5 Identification 10/79 2 (E,ET) 6.0 Follow-up Discussion 2/80 1 (E) 0.3 Preparation 9/80 5 (A,A,E,EG,ET) 15.0 Appraisal 1/81 5 (A,E,EG,EH,ET) 15.0 Post-Appraisal 5/81 1 (E) 0.5 Post-Appraisal 11/81 2 (A,E) 1.0 Supervision 3/82 2 (A,ET) 3.0 Supervision 6/82 2 (A,ET) 1.0 Supervision 10/82 3 (A,EA,ET) 4.5 Supervision 3/83 3 (A,E,EG) 3.0 Supervision 8/83 3 (A,EA,EG) 1.0 Lim. Supervision 1/84 1 (EA) 0.5 Supervision 3/84 3 (E,EG,EG) 1.0 Lim. Supervision 5/84 1 (EG) 0.2 Supervision 10/84 3 (A,E,ET) 1.0 Lim. Supervision 1/85 1 (A) 0.3 Lim. Supervision 10/85 1 (E) 0.2 Supervision 12/85 4 (A,E,EG,ET) 2.0 Supervision 3/86 4 (E,EA,EG,ET) 2.u Supervision 11/86 2 (EG,ET) 1.0 Lim. Supervision 3/87 1 (EG) 0.5 Supervision 9/87 4 (A,EG,ET,OA) 2.0 Supervision 6/88 1 (ET) 0.3 Supervision 2/89 1 (A) 0.4 a/ A- architLect E= Ecotiomist.; EA= Agricultura3 Educator; EG= General Educatur; EH= Healt.- r: s!ucator; ET= Terhniral rducator; OA= Orperations Assistant.  - 32 - RECORD OF OUARTERLY PROGRESS REPORTS SUBMITTED QuarterlYear Date Report Submitted 1st 1982 04/15/82 2nd 1982 07/29/82 3rd 1982 10/19/82 4th 1982 01/20/83 lt 1983 04/18/83 2nd 1983 07/21/83 3rd 1983 10/18/83 4th 1983 01/14/84 1st 1984 04/09/84 2nd 1984 07/15/84 3rd 1984 10/22/84 4th 1984 01/16/85 lst 1985 04/13/85 2nd 1985 07/13/85 3rd 1985 10/16/85 4th 1985 01/22/86 lot 1986 04/17/86 2nd 1986 07/08/86 3rd 1986 10/15/86 4th 1986 01/07/87 lt 1987 04/18/87 2nd 1987 07/29/87 3rd 1987 10/31/87 4th 1987 01/24/88