Cameroon - Second Education Project

RESTRICTED Report No. PE-46a This report is for official use only by the Bank Group and specifically authorized orpnizations or persons. It rmay not be published, quoted or cited without Bank Group authorization. The Bank Group does not accept responsibility for the accuracy or completeness of the report. INTERNATIONAL BANK FOR RECONSTRUCTION AND DEVELOPMENT INTERNATIONAL DEVELOPMENT ASSOCIATION APPRAISAL OF A SECOND EDUCATION PROJECT IN CAMEROON June 6, 1972 Education Projects Department  CURRENCY EQUIVALINTS 1 US Dollar = CFA Francs 255.8 CFA Franc 1 = US$ 0.0039 CFA Francs 100 = US$ 0.39 CFA Francs 1 million = US$ 3,909 Measures 1 M2 = 1.196 sq. yd. 1 m2 - 10.764 sq. ft. 1 kn2 = 0.38 sq. mile 1 hectare = 2.47 acres Fiscal Year July 1 - June 30 Note: Since this appraisal report was written, the Governments of East and West Cameroon have been consolidated into one central government, and the Federal Republic of Cameroon has become the United Republic of Cameroon.  FEDERAL REPUBLIC OF CAMEROON TABLE OF CONTENTS Page No. GLOSSARY BASIC DATA SUMMARY AND CONCLUSIONS ..... .................. i I. INTRODUCTION .................................. 1 II. SOCIO-ECONOMIC SETTING ........................ 2 Background ....... ............................. 2 Economic Development Strategy .... ............. 3 III. EDUCATION SECTOR .............................. 3 The Education System and Strategy .... ......... 3 Education Finance ....... ...................... 9 External Aid ......... ......................... 11 IV. THIE PROJECT ................................... 12 General . ....................................... 12 Primary Teacher Training Colleges - Garoua, Nkongsamba and Kumba ...... .................. 13 Ecole Normale Superieure (E.N.S.), Yaounde 13 Demonstration Upper Secondary School (Lycee), Yaounde ............ ......................... 13 Technical Secondary Schools and Teacher Training Section, Garoua and Douala ......... 13 Adult Vocational Guidance and Training Center (CESPE), Douala ..... ................. 14 Pre-Investment Study of Agricultural and Rural Training ....... ....................... 14 Pre-Investment Study of Technical Education and Vocational Training Requirements in the Northern Region ....... ...................... 15 Technical Assistance ...... .................... 15 Cost of the Project ...... ..................... 16 Recurrent Costs .............. 17 V. IMPLEMENTATION ....... ......................... 18 VI. AGREEMENTS REACIED AND RECOMMENDATION ......... 19 This report is based on the findings of an appraisal mission which visited the Federal Republic of Cameroon in November/December 1971. The mission consisted of Messrs. A. Salmon (General Educator), A. C. Tsantis (Economist), R. Lesire (Agricultural Educator, FAO), C. L. Molineaux (Architect-Consultant) and G. Motel (Technical Educator, ILO).  TABLE OF CONTENTS (Cont'd) APPENDICES I The Education and Training System II The Principles of the Reform III Manpower Requirements IV Education Finance V External Aid VI Technical Assistance ANNEXES 1 Comparative Indicators 2 General Education Development 3 Public Recurrent Expenditures on Education and Training (1965-70) 4 Capital Expenditures on Education and Training and Sources of Finance (1966-76) 5 The Project Items 6 The Project Costs by Types of Expenditures 7 Unit Capital Cost and Use Factor 8 Contingency Allowance 9 Project Implementation Schedule 10 Estimated Schedule of Disbursements CHARTS I Organization of Federal and Federated Educational Authorities II Structure of the Education System III Organization of the Federal Ministry of Education, Culture and Vocational Training IV Educational Pyramid (1970-71) MAP  GLOSSARY Baccalaureat: Upper secondary diploma (French system) Brevet: Lower general secondary diploma (French system) C.A.P.: Lower technical secondary certificate (French system) (Certificat d'Aptitude Professionnelle) C.A.P.C.E.G: Lower secondary school teacher degree (Certificat d'Aptitude au Professorat de Collge d'Enseignement General) C.A.P.E.: Junior Primary Teacher Diploma (Certificat d'Aptitude Pe'dagogique El6mentaire) C.A.P.E.S.: Upper secondary school teacher degree (Certificat d'Aptitude au Professorat de l'Enseignement Secondaire) C.A.S.T.: College of Arts, Science and Technology (West Cameroon upper secondary school) C.E.G. or C.E.S.: Lower general secondary school (College d'Enseignement Gdn4ral - College d'Enseignement Secondaire) C.E.S.P.E.: Adult vocational guidance and training center (Centre de S6lection, de Formation et de Perfectionnement professionnel du personnel des Entreprises) C.E.T.: Lower technical secondary school (College d'Enseignement Technique) C.F.Z.V.; Veterinary secondary school (Centre de Formation Zoo-V4t4rinaire) D.E.S.: University degree awarded after completion of second cycle studies at the Faculty of Arts, Science or Law (Diplome d'Etudes Superieure D.U.iE.L./D.U.E.S.: University degrees awarded after completion of first cycle studies at the Faculty of Arts or Science (DiplOme Universitaire d'Jktudes Litt4raires ou Scientifiques) Ecole Normale bu- Secondary teacher, primary inspector and youth and p4rieure or E.N.S.: sports inspector training college t.F.6.A.: Federal higher school of agriculture (Ecole Fe'dgrale Superieure d'Agriculture) E.T.A.; Lower secondary school of agriculture (Ecole Technique d'Agriculture) F.,a.Ge: French bilateral aid agency (Fonds d'Aide et de Cooperation)  GLOSbARY (Continued) Fa. *D. European Conmmimity aid agency (Fonds Europgen de Ddveloppement) G.C.L. A'Level: Upper secondary diploma (British system) (General Certificate of Education - Advanced Level) G.C.E. O'Level: Lower secondary diploma (British system) (General Certificate of Education - Ordinary Level) Ingenieur agronoae: Agronomist (Professional level) I.P.A.R.: Primary education reform center (Institut de Pedagogie Appliquee a Vocation Rurale) License: University degree awarded after three years (Arts and Science) and four years (Law) of faculty studies Lycee: Upper general secondary school Lyce'e Technique: Upper technical secondary school M.E.G.: East Cameroon junior primary teacher trained over two years after primary school (Maitre d'Enseignement G&n4ral) "Post Primary": Vocational training (craft, domestic science, home economics) offered after primary school but not usually considered as secondary technical education P.T.T.C.: Primary teacher training college.  CAMEROON BASIC DATA(1) (1970-73) Population 5.9 million Annual growth rate 2.1% National distribution Francophone 6ast Cameroon 80% Anglophone West Cameroon 20% Rural population 4.6 million (78%) Economically active population 3.1 million Modern sector employment 170,000 (5.5% of active population) Traditional sector employment 2.9 million (mostly in agriculture) GDP growth rate (1967-1971) 6.4% p.a. (in constant prices) GDP per capita $187 Levels of Student Enrollzents Education Numbers Ratio . Primary 934,000 (92.3%) 74% Secondary 75,400 ( 7.4%) 8% Higher 2,700 ( 0.3%) 0.3% Public expenditures on education and training (1969-70) CFAF 8.4 billion As percentage of GDP 3% As percentage of consolidated expenditures 20% / Also see Annex I for Comparative Education Data 2/ As percentage of age group   SUMMARY ANT) CONCLUSIONS i. This report appraises a second education project for Cameroon for which an IDA credit of US$9.0 million is proposed. The project would provide further assistance in the priority areas included within the first education project - primary and secondary educational reform, teacher training, and technical secondary education. It would also provide assist- ance for non-formal adult vocational training and agricultural and rural education. Both projects would help modernize and improve the training of the personnel required for the balanced development of the various economic sectors and regions of Cameroon. ii. The complex administrative and socio-political structure of Cameroon, a result of its dual Anglo-French colonial history, poses serious obstacles to developing a modern educational system capable of meeting the country's development needs. English-speaking West Cameroon and French- speaking East Cameroon, the two states of the republic, follow different educational patterns; this, together with original regional and ethnic differences, has created a country where regional differences predominate. The government would like to use education to assist in achieving its aim of unifying the country and redressing regional imbalances; yet, the educa- ition system itself suffers from the same deficiencies it would have to cure. iii. In the circumstances, the government has devised an educational development strategy which places highest priority on creating an inte- grated education system for the entire country, and also on expanding and upgrading education in those regions of the country most hampered by its lack, particularly the northern region of East Cameroon. Levels of educa- tion which are most prominent within this overall strategy are primary and secondary education where reform is intended to provide the underlying framework for further development of the entire system. iv. Aside from, though related to, these general education requirements, the country has immediate need for trained technicians and skilled workers to meet its economic development targets over the decade. Increasing short- ages of such workers became apparent in the late 1960's when industry and commerce grew rapidly. Moreover, a large proportion of professional (85%) and sub-professional (46%) staffs are expatriates. The current vocational and technical education system is unable to produce sufficient and appro- priately trained numbers of workers needed for employment in modern industry and commerce. For this reason, the government is placing importance in its present planning on expanding and improving vocational and technical training. It would also like to draw up similar specific plans for training agricultural personnel as it is generally recognized that a need exists for significant numbers of them to achieve agricultural growth; but at the present time, there is not a base on which to build an agricultural and rural training plan. This can be mainly attributed to the dispersion of responsibility for agricultural training among three state ministries and to the absence of a federal ministry of agriculture (Chart I).  - ii - v. The proposed project would assist the government in implementing its general educational strategy and in meeting specific needs in techni- cal training. Primary and secondary teachers would be trained under the project in accordance with the reform that has been planned to integrate and improve education at these levels; and the widespread adoption of pri- mary curriculum reform in West Cameroon would be supported. With the help of the proposed project, skilled workers, technicians and technical teachers would be trained in the areas of the country most in need of them; the pro- posed technician training college in the north would be the first and only such institution in that region. A pre-investment study of technical educa- tion and vocational training requirements in the northern region, initiated after the results of the on-going labor market study expected in June 1972, would assist the government in adjusting its educational plans to new prior- ities in the region. In addition, the government would be assisted in for- mulating an agricultural and rural training development policy through the provision of a pre-investment study in this field. vi. Specifically the project would consist of: (a) construction and equipment for: - three primary teacher training colleges (one new and two extended); one of these would include a center for primary education reform and teaching material produc- tion; - extension of one secondary teacher and primary inspector training college; - one new demonstration upper general secondary school; - two new technical secondary schools; one would include a workshop teacher training section; and - one new adult vocational training center; (b) pre-investment studies regarding agricultural education and rural training on a national basis and technical education and vocational training requirements in the northern region; and (c) related technical assistance to implement the program and fellowships for the training of counterparts. vii. The project implementation unit of the first project would be appropriately reinforced to provide overall supervision of the second proj- ect as well, and its related costs would be included within the project cost. Contracts for all civil works, furniture and equipment would be awarded in conformity with the Association's guidelines for international competitive bidding. For the purpose of comparing foreign and local bids, manufacturers in Cameroon or in the Customs Union of Central African States  - iii - would be accorded a margin of preference of up to 15% of the c.i.f. price of competing imports, or the generally applicable existing level of customs duties, whichever is the lower. All imported materials and services related to the Project would, however, be exempted from duties and taxes. viii. The proposed project is estimated to cost US$11.4 million, with a foreign exchange component of US$7.9 million (about 70% of the total cost). The project is suitable as a basis for an IDA credit of US$9.0 million, equal to 80% of the total cost of the project, which would meet the full estimated foreign exchange component and 32% of the local costs.   I. INTRODUCTION 1.01 A first IDA education project in Cameroon (Credit No. 161-CM, signed in September, 1969) provided US$10.5 million to assist the govern- ment in improving education by expanding and upgrading: (a) primary and secondary teacher training, (b) general and technical secondary education, and (c) agricultural secondary and higher education. Because of delays in selecting architects and agreeing on schedules of accommodations for proj- ect institutions, implementation is nine months behind schedule in East Cameroon and 12 months in West Cameroon. Bids received for the construc- tion of the project schools were 50% to 92% above the estimated costs; de- signs are now being revised and new tenders will be invited. 1.02 The first project will meet the immediate identifiable needs of West Cameroon, but does not cover all those presently defined for East Cameroon. For this reason, the proposed second project was developed to meet primarily these needs in East Cameroon and to provide assistance in defining further the needs in West Cameroon. A Unesco mission to Cameroon in November, 1970, identified this second education project for IDA fi- nancing. After brief IDA reconnaissance missions in June and October 1971, agreement was reached with the government on the project items, which were prepared in October-November 1971 with Unesco assistance. The project was appraised in November-December 1971 by a mission comprising Messrs. A. Salmon (general educator), A. C. Tsantis (economist), R. Lesire (agri- cultural educator-FAO), C. L. Molineaux (architect-consultant) and G. Motel (technical educator-ILO). 1.03 During appraisal the project was modified as follows: (a) a lower technical school was deleted because of an insufficient projected supply of qualified students; (b) three agricultural and one veterinary secondary schools were deleted because of incomplete planning; (c) expansion of a Higher School of Agriculture was deleted because the proposed new facilities were intended for uneconomically small groups; (d) technical assistance for technical schools was eliminated because of expected bilateral financing; and (e) a pre-investment study of agricultural training was added in order to determine the needs of this sub-sector and how they might best be met. 1.04 During negotiations, a pre-investment study of technical education and vocational training requirements in the northern region was added to as- sist the government in adjusting its educational plans to new priorities. 1.05 The project, as modified, would now provide financing for: (a) teacher training at primary and secondary levels and primary curriculum reform development; (b) technical secondary and adult vocational training, including teacher training;  - 2 - (c) pre-investment studies regarding agricultural educa- tion and rural training on a national basis and tech- nical education and vocational training requirements in the northern region; and (d) related technical assistance to organize and implement training programs. 1.06 All project institutions would be in East Cameroon, except one primary teacher training college with the center for primary education curricular reform and teaching material production. II. SOCIO-ECONOMIC SETTING Background 2.01 Cameroon is a federal republic composed of two states with dif- ferent languages and administrative traditions. Since its establishment as a unified country in 1961, Cameroon has made substantial progress in the difficult path of unification of both states. Yet, there are still marked differences, in addition to a major language barrier between the two states: francophone East Cameroon extends over 90% of the country's area and in 1971 had 80% of the total population of 5.9 million; it has a variety of climatic conditions and mineral resources and is much more de- veloped industrially than anglophone West Cameroon which is almost ex- clusively rural. East Cameroon, however, also includes a particularly underdeveloped northern region (see Map). In addition, there are reli- gious and ethnic differences within the states. Together with language, these differences limit inter-regional migration except among the highly educated and bilingual. A consequence of this limited mobility is that most institutions operate on a regional basis. 2.02 A large majority of the population (78%) lives in rural areas and, in spite of considerable migration to towns, 68% is still expected to be on the land in 1980/81. Agriculture contributed 38% of GDP in 1970 and is highly diversified. It remains, however, essentially traditional: 95% of cultivated land consists of small holdings of an average of three to five acres and 5% is commercial farming. Among the obstacles to agri- cultural growth are the shortage of qualified extension workers and the lack of effective mechanisms for transmitting to farmers the results of local agricultural research. Average annual farmers' income is only $90 while GDP per capita is double that amount. 2.03 The main stimulus to recent economic growth has been the rapid ex- pansion in the late 60's of industry and commerce which account for about 50% of GDP. However, this expansion, primarily a result of the development of im- port substitution industries, is now tapering off and growth in the sectors' employment, estimated at 63,000 in 1971, is expected to be moderate and de- termined by plant expansion rather than new large undertakings, with a few  -3- notable exceptions. Regional disparities are marked. The largest and most modern commercial and industrial establishments are concentrated in the coastal region of East Cameroon, particularly around the port of Douala. In this area, there is one wage earner for every 14 inhabitants as compared with a ratio of 1:160 in the north, and the national average of 1:35. Cameroonian workers represent the large majority of skilled workers, but expatriates still fill a large number of posts at professional (85%) and sub-professional (46%) levels. Public services have greatly expanded in recent years and now account for about 12% of GDP and employ 30% of wage earners. Economic Development Strategy 2.04 The government's priority objective established in 1960 is to double GDP per capita by 1980. The third five-year development plan, 1971/76, reflects a continuation of the government's efforts, which have so far been successful in meeting this objective. While the development thrust is to continue in the industrial and commercial sectors, the govern- ment's strategy also aims at reducing regional income and growth disparities by emphasizing programs that would stimulate the dormant secondary sector of the northern region and improve rural living standards generally. Plans for developing the industrial potential of the northern region include the construction of a hydro-electric plant, the development of bauxite extrac- tion, and the extension of better transport to the area. 2.05 Public investment will be mainly concentrated on improving in- frastructure facilities, but significant attention will also be devoted to education and rural development which, combined, are allotted 28% of the Third Plan's public funds. Agricultural development will be based on integrated programs and on an effort to modernize production. In order to obtain more substantial returns from the modernization policy, programs for extension and farmer training adapted to local needs must be established. III. EDUCATION SECTOR The Education System and Strategy (Appendix I, Charts I and II) 3.01 Underlying the low efficiency throughout Cameroon education is a lack of adequate coordination between the various public and private author- ities sponsoring all types of education at the federal and state levels. This situation is further complicated by the colonial inheritance of two different education systems in francophone East and anglophone West Came- roon (para. 2.01) which has resulted in marked differences in administra- tion, structure, curricula and examinations, as well as language of in- struction. These differences have made difficult the development of an integrated national educational system and have prevented comprehensive educational planning at the national level, despite competent federal and state ministerial staff. Uncontrolled enrollment growth, which has out- paced provision of both facilities and qualified teachers, has been the result, together with uneven regional development of education, with the northern region being neglected.  - 4 - 3.02 A particularly important barrier to effective educational planning and controlled development is still the strong influence of private educa- tion at primary and secondary levels; this is particularly the case in West Cameroon where, for instance, all primary schools and all but one of twelve primary teacher training colleges are private, and 86% of all secondary enrollments are in private institutions. In East Cameroon, 43% of primary and 65% of secondary enrollments are in private schools. Although the teaching staffs of private schools are paid by public funds, private schools are not under the effective control of the supporting state or federal governments. 3.03 To overcome these many difficulties, the government, in its Third Plan (1971-76), focuses on developing an integrated primary and secondary education system. In order to achieve its goal of an integra- ted system by 1980, the government intends to (a) introduce a uniform educa- tion structure in East and West Cameroon, together with associated curricular reform at both primary and secondary levels to create a system adapted to the local environment and designed to meet the requirements of a modern economy in Cameroon (Appendix II), (b) create a national planning mecha- nism, (c) develop local administration and supervision over schools, par- ticularly private ones, and (d) correct regional imbalances by strengthen- ing education, particularly primary education and teacher training, in the northern region (para. 2.01). Since higher education is already organized on a federal basis, the plan with respect to higher education deals only with expanding enrollments. 3.04 As yet, reform measures have only been partially introduced: planning for a structural reform at the national level has been completed and is expected to be implemented between 1971-76; a new secondary curri- culum has been developed by a joint East-West commission and is being pro- gressively introduced in East Cameroon; a new primary curriculum developed by a Unesco-Cameroonian team for East Cameroon is being introduced in that state, and will be extended to West Cameroon. 3.05 The further refinement and implementation of these and other re- form measures is expected to be greatly improved by the proposed establish- ment of a national planning department which will be responsible for plan- ning of all levels of education for East and West Cameroon. At present, the existing planning unit of the Federal Ministry (Chart III) deals main- ly with secondary education. Technical assistance provided under the first IDA education project will assist in developing this planning department. Eventually the department will become a part of a National Institute of Education which is to be established with possible UNDP and bilateral as- sistance during the Third Plan period. 3.06 Primary Education. The social demand for primary education, which is the responsibility of state governments, has been particularly strong; in 1970, total primary school enrollment reached 934,000 corres- ponding to 74% of the age-group concerned, a high percentage for a devel- oping country (Annex 1). The percentage varies greatly from region to  -5- region, and ranges from 90% in the southern part to 20% in the northern part of East Cameroon and 67% in West Cameroon. Between 1965 and 1970, primary enrollments increased by 6.4% and 3.6% p.a. in West and East Cameroon respectively, accelerated principally by the uncontrolled growth of private schools (enrolling in 1970, 100% and 43% of primary pupils in West and East Cameroon respectively). This rate of expansion has outpaced the supply of qualified teachers and has lowered the quality of an already poor primary school system. Public and private schools both suffer from a lack of qualified teachers: in 1970, only 20% of 19,500 primary school teachers were qualified; the others, primary school leavers, included 3,500 with two to three years of training and 12,200 without any training. The resulting low standards of both public and private primary schools are further aggravated by the continued use of an outmoded curriculum (para. 3.03), and are reflected in high dropout and repeater rates. 3.07 Both the state and federal governments have developed plans to deal with these problems in primary education. To limit annual enrollment increases to 3.0% p.a. progressively over the decade, both state govern- ments plan to enforce strictly the age and repetition regulations and, in some cases, charge fees to reduce repetition of grades. West Cameroon, where this problem has been more critical, has already begun to enforce these measures with visible success; East Cameroon intends to implement controls by 1975. The federal government, in cooperation with state gov- ernments, intends to develop more control over private schools (paras. 3.01, 3.02) by selectively reducing support for the least efficient schools and by expanding local supervision and administration (para. 3.03). The proposed project would assist in training local inspectors and in ex- tending the primary curriculum reform to West Cameroon. 3.08 Secondary Education. The main problem of secondary education is the system's unsuitable structure (chart II) which channels pupils at too early an age (after primary school) into either general, vocational, tech- nical or agricultural training with little possibility of changing courses later. In addition, the system suffers from undue emphasis upon examina- tions (promotion tests between all grades, and leaving and entrance exam- inations between cycles) which create blockages in promotion and repetitions and dropouts at all levels. 3.09 The secondary education reform (para. 3.03) will postpone spec- ialization by offering all pupils a common two-year academic course (grades 7, 8) before routing them to either further general studies or terminal skilled worker training. Academic course pupils, upon completion of grade 10, will have a choice between enrolling in a three year university pre- paration program, a one year teacher training course or technical courses of two or three years' duration. To reduce wastage, the reform will also introduce a pupil guidance program system which will assist pupils in de- ciding between the options available to them, and will regulate the enroll- ment flow between the various programs according to employment opportuni- ties. UNDP will assist the guidance development programs by providing  -6- experts. The reform of secondary education was initiated in 1971 in East Cameroon and will be applied progressively to East and West Cameroon over the decade. 3.10 General secondary education has problems similar to those in primary: uncontrolled expansion of enrollments, general low quality and efficiency, unadapted curricula and underqualified staff. Between 1965 and 1970, enrollments increased at the high annual rates of 13% in the lower cycle and 20% in the upper cycle. Total enrollment reached 56,000 in 1970/71, corresponding to 8% of the relevant age group. Forty percent of entrants drop out before the end of the lower cycle, only 8% complete the upper course, and 5% pass the final examination, which has resulted in shortage of qualified university applicants. 3.11 To improve the quality of general secondary education, the gov- ermnent plans to reduce the annual rate of enrollment increase in the lower and upper cycles to 7% and 10% respectively by 1975 and 5% and 7% respectively by 1980. Total enrollments are expected to reach 83,000 by 1975 and 120,000 by 1980 (100,000 in the lower and 20,000 in the upper cycle), which would be sufficient to provide the various subsequent types of education with qualified candidates and to meet labor market needs. The secondary schools financed under the first IDA project (para. 1.01) and by bilateral agencies and FED will make possible the planned enrollment increase in the various regions of Cameroon. 3.12 In addition, as part of the secondary education reform (paras. 3.03, 3.09), new curricula have been designed which will allow students leaving school at all levels to be prepared for employment while at the same time providing the background required for those continuing their studies. The proposed project would include one new upper secondary school which would be utilized to demonstrate these reforms and to provide suitable teaching practice in the new curricula for teacher trainees. 3.13 Teacher Training. The existing primary teacher training system in 1970/71 produced an estimated 800 graduates (500 in East and 300 in West Cameroon) and will have to produce 1370 annually by 1977 to satisfy the needs resulting from the expected increases in primary school enroll- ments. More than a quantitative increase will be required, however, as about one-third of present graduates of teacher training colleges have completed only primary education and two years of training and, therefore, although certified as "qualified", are underqualified in terms of educa- tional background. 3.14 For primary teacher training, the government has developed a plan, acceptable to both states, that would upgrade and expand the system to provide a sufficient supply (27,000) of better qualified teachers by 1980 (Annex 2). The up-grading would be accomplished by 1981 as follows: (a) 12,500 currently underqualified teachers will be given four months' in-service training sessions over a period of approximately six years;  - 7 - (b) teachers beginning their training in 1972-73 will be required to have at least four years of secondary education, thereby phasing out the recruit- ment of primary school leavers; (c) visiting inspectors will provide more frequent and more effective follow-up support to newly trained teachers by 1975; (d) ineffective institutions (para. 3.02) will be phased out as pri- mary teacher training colleges and will be replaced by new public training colleges. The capacity of the system will be increased through the first and the proposed second IDA projects by adding a total of about 900 student places to existing public institutions. 3.15 The supply of properly trained teachers for general secondary education is inadequate, and the government has had to hire underqualified teachers (54% of a total of 2,200) and expatriate teachers (35%). By 1980, it is estimated that about 4,500 general secondary teachers (3,650 lower and 850 upper secondary teachers) will be required. The only general secondary teacher training college in Cameroon is the Ecole Normale Supe- rieure (ENS), which has its main campus in Yaounde, East Cameroon, and an annex in Bambili, West Cameroon. In 1971, it graduated a total from both campuses of only 51 lower secondary teachers and 26 upper secondary teach- ers. To meet the need for secondary teachers, the ENS must train about 400 teachers annually (300 lower and 100 upper teachers) from 1976 onward. Although the quality of training is good, the institution at present has an enrollment capacity of only 250; this is to be increased with the as- sistance of the first IDA education project and the proposed project to 850 by 1976-77, which would provide 400 graduate general secondary teach- ers (380) and inspectors (20) annually by 1978. This number would be suf- ficient for enrollment increases and replacement for teacher attrition, and would also permit progressive replacement of expatriates; the proportion of local general secondary teachers would be increased from the present 65% to 85% of the total staff by 1980. 3.16 Technical and Vocational Education. As it is constituted at present, the technical and vocational education system is inadequate, both quantitatively and qualitatively, to meet the needs of Cameroon for trained technical person- nel. Total output is 130 technicians and 750 skilled workers per year, com- pared with an annual need of 560 technicians and 1,600 skilled workers. This demand is expected to increase to 600 technicians and 2,000 skilled workers per year after 1976 (Appendix III). 3.17 Even more serious is the low quality of training that is offered. This is due to a number of factors: outdated and excessively theoretical curricula; insufficient and obsolete equipment; inadequate facilities, par- ticularly workshops; and most importantly, insufficient numbers of quali- fied classroom teachers and workshop instructors. 3.18 The government is aware of these deficiencies and has placed high priority on expanding and modernizing vocational and technical training. Structural deficiencies in the vocational and training system will be cor- rected as a part of the secondary education reform (paras. 3.03, 3.09).  Technical options will be offered at various points along the academic ladder (Annex to Appendix II). These options will be of shorter duration but will place greater emphasis upon practical work. As recruitment will be delayed for nearly all courses until completion of grades 8 or 10, students will have a better general education background. New and more practical curricula, which have already been developed, will be introduced, together with modern equipment and better facilities. The proposed project would include two new technical secondary schools which would demonstrate the new structure and re- forms. 3.19 However, because of the timing of the first IDA project (para. 1.01) and bilateral assistance from Canada and FED, significant increases in output will not occur until 1976. By then, the first IDA project will provide 620 student places with an annual output of 200. The proposed proj- ect would provide 1,065 student places with an annual output of 340 by 1978. Both projects combined would meet about 17% of the estimated need for skilled workers and technicians over the decade. Bilateral assistance from Canada and FED will provide an additional 13%, the existing system, 37%, and the remainder (33%O) will be met by on-the-job training. 3.20 To ensure that the formal technical training system will be responsive to the actual needs of local industry and business, the gov- ernment intends to establish governing boards of technical schools which will include appropriate representation by local industry and business. As such representation would improve the relevance of the two project technical schools, the government has provided an assurance that it will establish the governing boards of these schools, as described above, no later than October 1975, approximately one year prior to their scheduled opening. In addition, a non-formal vocational guidance and training center (CESPE), jointly managed by the Ministry of Education and the private sector, will be established with the assistance of the proposed project. 3.21 Agricultural Training. The formal agricultural training system consists of eleven agricultural secondary schools and one four year post- secondary institution for professional agronomists. In 1971, this system produced 120 skilled workers and technicians and 15 agronomists. There is a generally recognized, but as yet unquantified, need for much larger num- bers of trained middle level agricultural personnel if the efficiency and quality of the government's services at farm level are to be improved suffi- ciently to meet the government's agricultural and related development programs. The development of a satisfactory agricultural training system has been ham- pered by budgetary constraints and a lack of clear and coordinated government policy. The latter can be attributed to the dispersion of responsibility for agricultural training among three state ministries and to the absence of a federal ministry of agriculture (Chart I). The project would assist the gov- ernment in undertaking a study that would analyze the quality and capacity of the existing uneconomically small public formal institutions and the various bilateral and private training programs, and determine how they might best be integrated into a more rational training effort commensurate with the identi- fiable needs of the proposed agricultural development strategies of both East and West Cameroon.  3.22 Rural Training (Appendix 1) is offered in programs in 34 pri- vate centers separately administered by various agencies and 13 types of training programs operated by four ministries. The public and private programs are run in a variety of facilities in villages scattered over the country. There is no coordination of these programs and little information about them is available because of inadequate supervision and the absence of an appropriate survey. 3.23 During the third plan period (1971/76), the government intends to reorganize and develop rural training in order to (a) give an appropriate instructional complement to primary school leavers, 80% of whom remain on the land; (b) give unschooled children the educational basis that will ena- ble them to take part in modernized agricultural production and (c) train adults to improve their cultivation and management techniques. The nation- al and bilateral programs (Appendix I) that have proved efficient will be expanded and will consolidate isolated programs after the analysis included in the above proposed pre-investment study is completed. The findings and recommendations of this study are expected to provide a suitable basis for a subsequent Bank Group project in rural training as well as formal agri- cultural training. 3.24 The government intends to develop and improve higher education particularly in medicine, science and teacher training. In addition to provision of teachers, bilateral and multilateral aid will be focused on the extension of the medicine and health science institute and the creation of a polytechnic institute to train higher technicians, engineers and tech- nical upper secondary teachers. Education Finance (Appendix IV and Annexes 3 and 4) 3.25 The responsibility for financing public education expenditures is divided between (a) the federal government which is responsible for fi- nancing construction materials for primary schools and all capital and re- current expenditures at secondary and post-secondary levels, and (b) the state governments which are responsible for minor construction for primary schools and the recurrent costs of primary education, primary teacher train- ing, and the vocational training schemes of various ministries. In 1969/70, total public educational expenditures amounted to CFAF 8.4 billion and ac- counted for 20% of the combined budgets of the federal, East and West Cam- eroon governments and 3% of GDP. When separated into federal and state ex- penditures, the proportion of educational expenditures in the states is high, as shown below:  - 10 - Educational Expenditures, 1969/70 Federal Government East Cameroon West Cameroon % of % of CFAF % of Federal CFAF State CFAF State (billions) Total (billions) Total (billions) Total Expenditures Expenditures Expenditures Total Public 4.2 14% 3.1 30% 1.1 38% Public Recurrent 3.8 15% 3.0 30% 1.1 42% 3.26 Public capital expenditures on education and training amounted to about CFAF 500 million in 1969/70, of which about 80% were undertaken by the federal government and most of the remainder, CFAF 100 million, by East Cameroon. The capital expenditures of West Cameroon were minimal due to the government's ban on the opening of new primary schools since 1966 in order to form more economical school units. 3.27 Private schools are a major element of the education system in both East and West Cameroon, and are heavily subsidized by the federal and state governments. The operation of private schools absorbed CFAF 2 bil- lion of public recurrent education expenditures and an additional CFAF 2 billion from the private sector, making a total of approximately 40% of total recurrent educational expenditures. West Cameroon spent CFAF 1.07 billion of its total recurrent education expenditures of CFAF 1.1 billion on private primary schools and teacher training institutions. 3.28 The recurrent education expenditures of the state governments are heavily taxing the states' financial resources, which are limited to direct taxes, and in the case of West Cameroon also include a substantial annual federal subsidly amounting to 60% of the state's total expenditures. Their high level illustrates the public commitment to education in Cameroon, but also provides evidence that further enrollment expansion will not be possible without substantial improvements in the efficiency of the education systems or alternate arrangements for education financing. Already, the states have taken appropriate action to meet financial constraints. Unable to pay teachers' salaries in 1970/71, the West Cameroon government discharged 1,000 unqualified teachers and used a supplementary federal subsidy to pay the remaining salary bill. It then instituted various stringent measures, effective with the 1971/72 fiscal year, to generate sufficient internal savings and new funds to meet the expenditures of new primary enrollments (Appendix IV). These measures included newly imposed charges on repeaters which are expect- ed to reduce repeaters from 22% to about 10% of primary enrollments, ration- alization of teacher training, increases in the primary student/teacher ratio from 1:37 to 1:45, the institution of controls in the subsidies to private schools; and various other measures designed to eliminate waste, and to increase revenues. The savings to be realized by these measures would add about CFAF 200 million to the government's revenues, which should be sufficient to finance the proposed 3.0% p.a. increase in primary enroll- ment in the state (para. 3.07).  - 11 - 3.29 Mindful of West Cameroon's experience and of its own financial constraints, the Secretariat of State for Primary Education in East Cameroon has revised the projection of primary enrollment expansion from 200,000 new students in 1971-76 to 125,000, and has issued strict orders for the enforce- ment of regulations pertaining to repeaters and overaged students, who jointly account for 45% of the primary enrollments. The savings to be realized from a reduction of repeaters to 20% would be sufficient to finance the new primary enrollments. To ensure the enforcement of these regulations, which in the past have exercised only a marginal impact on enrollments, the government is strengthening its inspectorate by doubling its national field staff of 40 by 1975 and quadrupling it by 1980 (paras. 3.03 and 3.07). 3.30 The federal governments's objective is to federalize gradually most state activities. It has already been assuming some of the states' responsi- bilities, recently those of transportation, police and public works (the lat- ter only for West Cameroon). Concurrently, the federal government has at- tempted to increase the states' revenue base (corporate tax reform). The ultimate goal of the government is to eliminate the subsidy to West Cameroon, but until the state can effectively broaden its revenue base, the government will continue its financial support particularly when such assistance is re- quired for the education sector. 3.31 Irrespective of any action in this field, the share of the federal government's own expenditures on education will be steadily increasing be- cause of its responsibility to finance secondary and post-secondary levels which currently are the fastest growing and most expensive sub-sectors. If the third plan's enrollment targets are to be met, recurrent expenditure at the secondary level would have to double the 1969 level to CFAF 2.7 bil- lion and at the university level increase from about CFAF 1.1 billion to CFAF 4.2 billion. It is unlikely that, in competition with other priority sectors, the government can afford such an enrollment expansion, particu- larly at the university level. As the plan's enrollment targets at these levels have been established independently of manpower projections, the targets must be reviewed and amended, as required, when the results of the new labor market study are analyzed, to determine priorities in the alloca- tion of capital and recurrent funds which, in the Third Plan, highly favor general education. External Aid (Appendix V) 3.32 Education and training programs have been assisted extensively through grants and loans from public, private, bilateral, and multilateral agencies. This assistance has been provided to all levels and types of education and is expected to continue at a high level during the third five year plan in which CFAF 9 billion (or 41% of the anticipated capital expendi- tures on education) is expected to be externally financed. The principle agencies assisting in the development of the sector are F.A.C. and F.E.D. F.A.C.'s annual support to the sector amounts to about US$12 million or 40% of its total assistance to Cameroon. F.A.C's interest is now limited to the provision of teachers and the support of three higher education  - 12 - projects (The Faculty of Health and Medicine, the Higher Technical Insti- tute and the Post and Telecommunication Institute). F.E.D. is now involved in its second phase of assistance allocating about US$14.5 million for 1972-74, primarily for construction of primary and secondary school class- rooms and staff housing. IV. THE PROJECT General (Annex 5) 4.01 The proposed project would assist in financing (a) the construc- tion and equipment of new institutions and the extension of existing ones as listed below and (b) technical assistance both for the project institu- tions and for pre-investment studies related to agricultural and technical education and rural training. These project items would complement the first project (paras. 1.01 and 1.02) by (a) expanding and improving pri- mary and secondary educational staff training and demonstrating the second- ary education reforms, (b) extending primary education reform to West Cameroon, (c) expanding technical education, (d) introducing non-formal adult vocational training and (e) initiating a national study of agricul- tural education and rural training, and a study of technical education and vocational training requirements in the northern region. Additional Accommodations Student Places Student Staff Type of Institution Grades Additional Total Boarding Housing Units Three Primary Teacher Training Colleges (new and extended) 11 280 630 230 4 One Ecole Normale Superieure (extended) 14-17 350 850 240 - One Demonstration Second- ary School (new) 11-13 1,000 1,000 - 2 Two Technical Secondary Schools and Teacher Training Section (new) 7-13 1,115 1,115 200 3 One Adult Vocational Training Center (new) Ungraded 250 250 60 3 TOTAL 2,995 3,845 730 12  - 13 - Primary Teacher Training Colleges - Garoua, Nkongsamba and Kumba 4.02 The three colleges assisted - including the one at Garoua which would be the first teacher training institution in the north (paras. 3.01, 3.06) - would provide a total of 280 additional student places. These, to- gether with the 630 student places financed by the first IDA education proj- ect, would represent 45% of the system's capacity in 1976/77 and would be sufficient to meet the requirements for 1977/78. The training would also be designed to prepare teachers to become village leaders, and would there- fore include courses in community development techniques, school guidance and administration. Trainees would be given civil service status and would be conmitted to a ten year teaching assignment upon admission. At the end of the training year they would receive the C.A.P.E. or Grade II diploma. Ecole Normale Superieure (E.N.S.), Yaounde (Appendix II) 4.03 The proposed expansion of this college, the only secondary teacher training institution in Cameroon, would provide an added yearly output of 150 by 1980, thereby raising total and yearly output to 400 (280 lower sec- ondary teachers, 100 upper secondary teachers and 20 primary inspectors). 4.04 The expansion and quality improvement is necessary because of: (a) the increase of general secondary enrollments caused by the structural reform (para. 3.09) which institutionalizes a two-year lower secondary course for all secondary students, (b) FAC's policy to reduce technical assistance in general secondary teachers, and (c) the increase of primary inspectors required to ensure control over primary schools (para. 3.06). As with pri- mary teachers, E.N.S. trainees are given the status of civil servants and committed to teach for ten years. As experience indicates that scholarships are necessary to attract applicants, the government has provided an assur- ance that a sufficient number of scholarships would be awarded to ensure full enrollment. Demonstration Upper Secondary School (Lycee), Yaounde 4.05 This new demonstration upper secondary school (Lycee) would pro- vide practice teaching experience in the new secondary curricula for the ENS teacher trainees and serve as an innovation center in secondary curri- culum development. The new school would replace the upper secondary section of an overcrowded existing secondary school. The proposed Lycee would be used for sunmner vacation seminars and upgrading sessions organized by the E.N.S. for an estimated 200 upper secondary teachers annually. Technical Secondary Schools and Teacher Training Section, Garoua and Douala 4.06 The two new schools would be: (a) an upper secondary school at Garoua (Lycee Technique) and (b) a lower secondary CET in Douala, includ- ing a teacher training section for lower secondary workshop teachers. The Lycee Technique at Garoua, which would be the only technician training institution in the northern region, would produce 90 technicians annually  - 14 - who would be employed in the region or go on for higher technical studies. The lower school (CET) in Douala would have an annual output of 250 skilled workers. It would be the only public institution of that type in the coastal region and include a post-secondary workshop teacher training section which would be an annex of the ENS. Teacher trainees would be recruited on a na- tional basis from among qualified working technicians. The curriculum has been developed and is already being applied in a temporary technical teacher training program in the Douala Lycee Technique. 4.07 The new secondary structural and curricular reforms (para. 3.09) would be applied to both schools which would be the pilot schools in tech- nical education. Both schools would be used to train approximately 2,000 semi-skilled workers in evening classes and upgrading sessions during sum- mer vacations. Adult Vocational Guidance and Training Center (CESPE), Douala 4.08 This non-formal training center would offer short training and upgrading courses (1 to 5 weeks), for about 2,000 employees p.a. in all specializations represented in local industry at semi-skilled, skilled and technician levels; a minimum of 1,500 would attend training courses oroan- ized by CESPE itself and 500 would attend special ones organized on the specific request of firms through the Chamber of Commerce. The Center would be a public institution, sponsored by the Ministry of Education (Chart III), and jointly managed by public administration and private sec- tor representatives. The Lycee Technique in Garoua (para. 4.06) would be the annex of the CESPE in the northern region. During negotiations, it was agreed that the law which would establish and prescribe the regula- tions of the CESPE, satisfactory to the Association, would be a condition of disbursement for this project item. Pre-Investment Study of Agricultural and Rural Training 4.09 The objective of this study would be to assist the government in determining (a) the numbers and types of trained agricultural person- nel required by the proposed agricultural and related development programs and (b) how the present ineffective and uneconomically small formal and non-formal training programs operated by the government, bilateral agen- cies, and private organizations might best be organized to meet the above needs and the more general needs of the rural population. Particular at- tention would be given to the training of country women and special con- sideration would be given to the less developed northern region and West Cameroon. The project would provide the equivalent of three man-years of expert services to carry out the pre-investment study. The experts as well as terms and conditions of their employment would be acceptable to the Association. It is understood that the 1973-76 UNDP program for Cameroon had already been formulated and that it did not include provision for this study.  - 15 - Pre-Investment Study of Technical Education and Vocational Training Requirements in Northern Cameroon 4.10 The objective of this study would be to assist the government in determining (a) the needs of Northern Cameroon for various levels and types of technically trained personnel, (b) the corresponding required training institutions, equipment, and staff, and (c) the feasibility of a lower tech- nical secondary school in Ngaoundere. The study would be initiated after the results of the on-going labor market study (now expected in June, 1972). The project would provide the equivalent of one man-year of specialists' services. The specialists, and the conditions of their employment, as well as the terms of reference of the study, would be acceptable to the Associa- tion. Technical Assistance 4.11 In addition, the project would provide for (a) 17 man-years of specialist services for the organization and implementation of training programs and the training of national counterparts and (b) five man-years of scholarships for these counterparts, as described in Appendix VI. All experts and counterparts as well as terms and conditions of their employ- ment would be acceptable to the Association. The time schedule of the technical assistance program is given in the Annex to Appendix VI.  -16- t _