Somalia - Second Education Project

Report No. 438a-SO FILE CPfDv Appraisal of a Second Education Project in the Somali Democratic Republic July 22, 1974 Education Projects Division Eastern Africa Regional Office Not for Public Use Document of the International Bank for Reconstruction and Development International Development Association This report was prepared for official use only by the Bank Group. It may not be published, quoted or cited without Bank Group authorization. The Bank Group does not accept responsibility for the dccuracy or completeness of the report.  CUENCY EQUIVALENTS US$1 = So. Sh. 6.23 So. 1 US$0.16 MEASURE 1 Meter (a) - 3.28 Feet 1 Square Meter (2) - 10.76 Square Feet GOVERNENT OF THE SOMALI IEM)CRATIC REPUBLIC FISCAL YEAR January 1 to December 31  SOMALI DEMOCRATIC REPUBLIC APPRAISAL OF A SECOND EDUCATION PROJECT Table of Contents Page No. BASIC DATA GLOSSARY SUMMARY AND CONCLUSIONS .................... ......... i - iv I. INTRODUCTION ........ .......................... . 1 II. DEVELOPMENT AND HUMAN RESOURCES' NEEDS ......... 1 Socio-Economic Background 1................. 1 Development Objectives ......................, 2 Manpower Requirements for the Modern Sector .... 3 Human Resources and Rural Development .......... 4 III. THE EDUCATION AND TRAINING SECTOR .... .......... 5 Evaluation of the Sector ................ 5 Education Policy and Strategy ................ 6 Financing Educational Development ............ 8 IV. THE PROJECT .................................... 10 Objectives .................. ................... 10 Project Items .................................. 11 The Academy of Somali Studies ................ .. 11 The New Elementary Teacher Training College in Hargeisa ................................. 11 The Ten Nomadic Training Centers (NTCs) ........ 12 Secondary Education ............................ 14 Technical Assistance ........................... 14 V. PROJECT COST, FINANCING, IMPLEMENTATION, PROCUREMENT AND DISBURSEMENT ................... 15 This report is based on the findings of a mission in November/December, 1973, to Somalia composed of Mr. R. F. McMahon (technical educator), Mrs. S. M. Asher (economist) of the Bank, Mr. K. Andersen (architect) of Unesco, Mr. H. Rambaud (fishery education specialist) of FAO, and Mr. C. Gilpin (nonformal education specialist), consultant to the Bank.  Table of Contents (Continued) Page No. Cost Estimates ................................. 15 Customs Duties and Taxes ................... 17 Contingency Allowances ................ . . 17 The Foreign Exchange Component .............. 17 The Financial Plan ....................... . ... 17 Implementation .................... 18 Administration ........ ............ 18 Professional Services (Architectural/ Engineering) .................. .. 18 Procurement .... ................ 18 Civil Works ......... o 18 Furniture and Instructional Equipment ....... 19 Disbursement ................. o ................. 19 VI. BENEFITS AND JUSTIFICATION ..................... 20 Benefits .......................... 20 Risks involved in the Project .21 VII. AGREEMENTS REACHED AND RECOMMENDATION .... ...... 21 APPENDIXES 1. The Somali Nomads - Socio-economic Conditions and Education Opportunities. 2. The Education and Training Sector Tables: 1. Results of Diagnostic Examination of Teachers, 1972. 2. Teachers and Students in Technical and Vocational Training Institutions, 1972-1973 3. Breakdown of Enrollments at the College of Education, 1972-1973 4. Training Courses at the Somali Institute of Public Administration, 1971-1972. 5'. Educational Programs at Radio Mogadiscio, 1973.  Table of Contents (Continued) ANNEXES Comparative Education Indicators 1. Stock and Requirements of Manpower by Occupation, 1971-1983. 2. Manpower Requirements by Occupation and Educational Background, 1972-1983. 3. Employment by Occupation, 1971-1983 4. Enrollments in Primary and Secondary Schools, 1966-1972. 5. Institutions, Enrollments and Teachers by Level of Education, 1972-1973 6. Somali National University - Projections of Enrollments and Outputs, 1973-1984 7. Projections of School Enrollments, 1973-1983 8. Allocations of Recurrent and Development Expenditures to the Ministry of Education and to the Ministry of Culture and Higher Education, 1969-1983 9. Breakdown of Recurrent Expenditures of the Ministry of Education and the Ministry of Culture and Higher Education, 1969-1983 10. Summary of Estimated Project Costs 11. Implementation and Disbursement Chart 12. Estimated Schedule of Disbursements CHARTS 1. Structure of the Educational System 1973/74 World Bank 8286(R) 2. Public General Secondary, Intermediate and Elementary School Enrollments in 1972-73 World Bank 8285 3. Organization of the Ministry of Education, 1974 World Bank 8288(R) 4. Organization of the Ministry of Culture and Higher Education, 1974 World Bank 8287(R) MAP   SOMALI DEMOCRATIC REPUBLIC BASIC DATA (est.) 1972-73 General Area 637,OOO Km2 Population (1973 estimate) 3.1 million Education Enrollment in elementary schools (grades 1-4) 52,765 As a percentage of 6-9 years age group 16.4 % Enrollment in intermediate schools (grades 5-8) 24,668 As a percentage of 10-13 years age group 9.3 % Enrollment in general secondary schools (grades 9-12) 7,731 As a percentage of 14-17 years age group 3.4% Enrollment in post-secondary institutions 461 Total recurrent expenditure on education and training (1973 estimate) So.Shs. 31.9 million As a percentage of total Government recurrent expenditure 8.1%   GLOSSARY Koranic School - School providing two years of pre- elementary religious instruction Elementary education - Grades 1 - 4 Intermediate education - Grades 5 - 8 Primary education - Grades 1 - 8 Secondary education - Grades 9 - 12 MEE - Ministry of Education MCHE - Ministry of Culture and Higher Education FYDP - Five-Year Development Plan, 1974-78 NTC - Nomadic Training Center NTEC - National Teacher Education Center, Afgoi, which has recently been incor'Dorated in the National University and renamed the College of Education. Participation rate - Ratio of those actually joining the labor force at a given level to those educationally qualified to join it. School leavers at a given level joining the labor force as a proportion of total outputs from the education system at that level.   SOMALI DEMOCRATIC REPUBLIC APPRAISAL OF A SECOND EDUCATION PROJECT SUMMARY AND CONCLUSIONS i. This report appraises a second education project in the Somali Democratic Republic for which IDA assistance of US$8.0 million equivalent is proposed. A first education project, assisted under Credit 247-SO extended in 1971, is helping expand primary teacher training and qualitative improve- ments to general, technical and commercial secondary schools. ii. The Somali education and training sector has significant weaknesses both quantitatively and qualitatively. Quantitatively, enrollments at the pri- mary 1/ school level are a low 13% of the relevant age group falling to under 4% at the secondary level. Further, 83% of secondary school enrollments are concentrated around the main towns of Mogadiscio and Hargeisa. Educational opportunities in rural areas, particularly for the nomads, who number some two million people or 70% of the population and whose livestock is the main- stay of the economy, are negligible. There is a shortage of skilled personnel of all kinds; for example, the present production of secondary school graduates falls so far behind demands that Government directs all the schools' output either into higher education or essential employment in the public sector. Qualitatively, school buildings, furniture and particularly science equipment are so inadequate as to render the teaching of scientific and practical subjects largely ineffective and indicate urgent need for improvement. Low literacy, estimated at only 5% of the population also reflects the low priority accorded to the education sector by the Government before 1971. iii. However, since 1971, the Government has given greater emphasis to education and training, particularly of a type intended to benefit the large rural population rather than the relatively few elitist urban dwellers. A major effort is being directed towards increasing literacy: attendance at courses has increased from 14,000 in 1970 to 203,000 in 1973. Facilitating this expansion has been the recent adoption by the Government of the Somali language with Latin script as the teaching medium to replace gradually the former diverse and confusing use in schools of Arabic, English and Italian. The education section of the draft new Five-Year Development Plan (1974-78) (FYDP) formulates policies and student enrollment projections designed to relieve the weaknesses described above. iv. The proposed project would support the policies of the FYDP to align education and training more closely to the estimated future needs of the economy in which development of livestock and agriculture is the dominant theme. In particular, it would (a) provide the major part of its financial 1/ See Glossary and Chart 2.  - ii - support to the furtherance of literacy and help for the nomads; (b) improve secondary schools; and (c) strengthen the Project Unit of the Schools Construc- tion Unit in the Ministry of Education. v. Specifically, the project would provide: (a) buildings, furniture and equipment for the following new institutions: - one Academy of Somali Studies - one Elementary Teacher Training College with 800 student places - ten Nomadic Training Centers (NTCs) each with 160 trainee places; (b) equipment for improvements, and rebuilding where required, at 10 existing general. secondary schools and one specialized secondary school to provide 1,420 additional student places; and (c) specialists services for (i) development of a specialized secondary school, viz., the Fishery and Marine Institute; and (ii) strengthening of the Project and Schools Construc- tion Units. The project institutions would have a total of about 6,700 student places of which 3,800 would be new. These figures do not include attendance at NTCs of adults, estimated at 2,000 p.a. vi. The Academy of Somali Studies which forms part of the Ministry of Culture and Higher Education is to be expanded into one of Government's prin- cipal advisory instruments for development of the diverse branches of educa- tion and training. Its most immediate and urgent functions are concerned with the development of the official language and writing of textbooks for use throughout the formal and nonformal education systems. The Academy would also regularly monitor and assess progress both in the education system as a whole and in individual specialized branches of the system, particularly in those which are experimental and of an innovative nature. The Academy is also responsible for a variety of cultural and social activities, including, when resources permit, development of the existing National Museum and found- ing of a National Library. vii. To the detriment of basic education and functional literacy, pre- service primary teacher training colleges were suspended during the four years 1968-72. Consequently, there is now such an acute shortage of teachers for basic education that in 1972, 750 secondary school leavers were drafted for one year's service as primary school teachers; this is likely to be repeated in diminishing degrees for some years. The 800-student capacity elementary teacher training college included in the proposed project would graduate nearly 400 teachers p.a. and would support planned increased pupil enrollments at the elementary level (grades 1-4) until about 1985. In addi- tion to normal instruction in theoretical and practical subjects including  - iii - pedagogy, the teachers would receive a broader training to fit them as leaders in their social environment and so support Government's policy of using schools as centers for educational, social and ancillary community development activities. viii. The major part of the proposed project (46% of the total cost) would help finance ten Nomadic Training Centers (NTCs) each of 160-trainee capacity. The NTCs would be sited in careful.y chosen locations so as to cover a wide range of the various climatic and ecological conditions; due regard would be paid to other development projects such as the IDA-assisted Trans-Juba Livestock Project in whose area four of the NTCs would be sited. Although the NTCs are primarily the responsib5ity of the Ministry of Education, other Ministries, notably the Ministry of Livestock, Forestry and Range, are cooperating to ensure success in achieving their objectives of providing train- ing courses and services for the nomads. Because of the experimental and inno- vative character of theNTCs, some risks are inevitably associated with their future effectiveness. There are factors such as the degree of acceptance of the NTCs by the nomads, whether young nomads during or on completion of their courses would migrate to urban areas and whether local administrations would be able to cooperate effectively to organize and operate the NTCs, which can be assessed only in the light of future experience as the NTCs are developed. Consequently, the project makes special provision for the regular monitoring and assessment of their planning and progress, and responsibility for this work would be assigned to the Interuinisterial Nomadic Education Board which is being formed, with whom the Association would maintain close liaison. ix. The improvements to the 11 secondary schools would be similar to the improvements to the 13 secondary schools included in the first IDA educa- tion project and would provide urgently needed equipment, laboratories and workshops to support the effective teaching of scientific and practical subjects. One of the secondary schools is specialized in character, viz., the Fishery and Marine Institute where boys would receive a basic training for life at sea oriented principally to the provision of manpower for the fishing fleet and fish processing industry. Graduate output from the country's 26 general secondary schools (of which 11 were assisted under the first IDA education project and 10 are included in the proposed second project) would meet most estimated manpower needs at this level up to 1983; no surplus of secondary school graduates is foreseen during this period. An adequate supply of teachers would be graduated by the National Teacher Education Center which is being assisted both by the first IDA education project and by a team pro- vided by UNDP/Unesco. X. A Project Unit, which forms part of the Schools Construction Unit established under the first IDA education project in the Ministry of Education, would be suitably reinforced to enable it to execute the larger volume of work included in the proposed second education project. The Project Unit would be assisted as regards technical services by the Ministry of Works and seven man-years of specialist services are included in the proposed project to enable early recruitment of three key personnel for the Project Unit. Contracts for furniture, equipment and didactic materials (US$2.24 million  - iv - equivalent) would be awarded in accordance with the Bank's guidelines on in- ternational competitive bidding; those below US$30,000 up to an aggregate total of US$100,000 would be on the basis of domestic competitive bidding. Awards for construction contracts (US$7.03 million equivalent) would also be in accord- ance with the Bank's guidelines on international competitive bidding, except that, because of their small size (an average of under US$100,000 equivalent), civil works contracts for the additional facilities at the ten general secondary schools would be awarded following domestic competitive bidding. Domestic manufacturers of equipment would be awarded a margin of preference equivalent to the existing customs duties applicable to competing imports or 15% of the c.i.f. price, whichever is lower. Domestic civil works contractors would be awarded a margin of preference of 7-1/2% over foreign competing civil works contractors; however, because of the small size of most of the civil works contracts, it is unlikely that foreign contractors will compete for awards. xi. The total project cost is estimated at US$10.1 million, correspond- ing to US$9.3 million net of taxes, with a foreign exchange component of US$6.1 million equivalent or 60% of the total project cost. This high per- centage is the result of virtually all building materials except concrete aggregates having to be imported. The proposed IDA Credit of US$8.0 million would correspond to about 86% of total project costs net of taxes and duties. The project would be completed in approximately six years. xii. The proposed project constitutes a suitable basis for an IDA Credit of US$8.0 million equivalent.  SOMALI DEMOCRATIC REPUBLIC APPRAISAL OF A SECOND EDUCATION PROJECT 1. INTRODUCTION 1.01 Somalia has received one IDA Credit for education (Credit 247-SO) in 1971, for an amount of US$3.3 million. The project, estimated to cost US$3.7 million, was designed to improve Somalia's education and training, to consolidate existing institutions and to increase the relevance of the system to the manpower needs of the country. It is assisting major improvements in teacher training, secondary education, technical and vocational education and agricultural education by providing for extension of the National Teacher Education Center (NTEC), one new and extensions to ten general secondary schools, extensions to two technical and commercial schools and eight mobile agricultural training units. Also provided was technical assistance for launching the new teacher training program and establishing the Project and Schools Construction Units at the Ministry of Education (MOE). Implementation is now proceeding satisfactorily after some initial delays caused primarily by the belated appointment of the technical assistance specialists to the Project and Schools Construction Units of the MOE. 1.02 In January-February, 1973, a Unesco mission reviewed Somalia's edu- cational objectives and identified priority investment requirements; in September 1973, a Bank Group mission, in consultation with the Government, considered Unesco's findings and in consequence Bank/IDA received a request to assist a second education project. 1.03 The project was prepared and simultaneously appraised in November- December 1973, by a mission composed of Mr. R.F. McMahon (technical educator), Mrs. S.M. Asher (economist) of the Bank, Messrs. K. Andersen (architect, Unesco), H. Rambaud (fishery education specialist, FAO), and C. Gilpin (non- formal education specialist, consultant). During appraisal, the initial proj- ect proposals were revised, in agreement with the Government, to reduce cap- ital and recurrent costs in line with Somalia's absorptive capacity. The proposed project is estimated to cost US$10.1 million equivalent, of which the foreign exchange component is US$6.1 million equivalent. II. DEVELOPMENT AND HUMAN RESOURCES' NEEDS 2.01 Socio-Economic Background. With a per capita income estimated at only US$70-80, Somalia is one of the least developed countries in Africa. The country extends over an area of 246,000 square miles, roughly one-half the size of Ethiopia. The main regions are the Northern region consisting of steppes; the Bossaso region, mainly highlands with sparse vegetation; the Nudugh region, an arid high plateau; the inter-river region, the country's main fertile area; and the Trans-Juba region of the South which is thick  -2- bush and forest. The population is predominantly Somali, with minorities of indigenous Bantus, Arabs, Asians and a few thousand Europeans, mainly Italian. The Somali people are of Hamitic stock and comprise a homogenous ethnic and linguistic group sharing a common culture, whose customs and traditions had to be transmitted orally from generation to generation because of a lack of a script for the Somali language. The adult illiteracy rate is estimated at 95%, one of the highest in the world. Life expectancy at birth is only 40 years compared with 48 years for the Sudan and 49 years for Kenya. 2.02 of the total population estimated at 3.1 million, about 70% is nomadic or semi-nomadic and mainly dependent on animal husbandry and subsis- tence farming. Appendix I depicts the socio-economic conditions of the Somali nomads and indicates that there is an urgent need for increasing investments and services in the nomadic areas. More than one-half of the land area in Somalia is suitable for livestock production and this potential can be greatly increased if measures are taken to improve pasture management, water supplies, animal health and tsetse fly control. About 13% of the total land area (or eight million hectares) is suitable for cultivation and of this no more than 5% (or 400,000 hectares) are worked. Live animal and livestock products account for about two-thirds of total exports and bananas for another one-quarter. Nevertheless, food, particularly cereals, represents one-third of total im- ports. 2.03 While Somalia's principal assets are land and livestock, there are other resources which are promising and which provide a basis for develop- ment in the future. First, and geographically most obvious, is the potential for fishing. Somalia has the longest sea coastline of any country on the main- land of Africa and, in her position at the horn of Africa, is strategically placed to fish in both the Indian Ocean and the Gulf of Aden. Secondly, recent discoveries of minerals such as uranium, iron and gypsum are being studied with a view to commercial exploitation. 2.04 Development Objectives. Somalia has produced three Development Plans. The First Plan covering the period 1963-68 was aimed primarily at creating social and economic infrastructure. The Second Plan was a short- term development program for the period 1968-70; it sought to complete projects carried over from the First Plan, and also the continuation of efforts toward strengthening infrastructure. The Third Plan, 1971-1973, gave priority to agriculture and livestock. Industry was assigned low priority, except for some programs to rationalize existing establishments and to promote small-scale food processing. 2.05 There is no accurate statistical information on the implementation of these Plans. The general conclusion, however, is that their overall im- plementation lagged considerably behind targets. Several factors contributed to their slow progress. Firstly, they were the initial experiences of Somalia in development planning and the Plans were defective because of a lack of basic statistical data and information on the structure of the economy. Sec- ondly, there was an acute shortage of skilled manpower to prepare, manage and execute projects. These problems were compounded by the Government's  -3- inability to raise internal financial resources to complement external as- sistance. In the next Five-Year Development Plan, 1974-78 (FYDP), now in the final stages of preparation, emphasis is primarily on livestock, agricultural and fishery developments, but provision is also made for improving industry and further mining exploration. The severe financial constraint which impeded development in the 60's has been partly removed: Government's efforts to balance the "ordinary" 1/ budget entirely from internal sources have been largely successful and consequently a greater share of the total budget is available for priority "development" expenditures. In particular, high pri- ority is given to education and training to develop the skilled manpower required to execute projects and to mobilize the human resources needed for improved herd management and crop cultivation. 2.06 Manpower Requirements for the Modern Sector. With ILO assistance, the Government conducted a manpower survey in 1971, when modern sector employ- ment was estimated at about 108,400 2/ of whom about 50% were employed in the public sector. The number of foreigners employed was insignificant, most being in the private sector in sales jobs; only about 6% of the high-level manpower were foreigners. The survey also estimated requirements by occupa- tional categories for the period 1972-76. In the light of recent information these estimated requirements have been updated and projected to 1983 by the Bank Group staff, using employment growth rates of 3.7% for the public sec- tor and 2.7% for the private sector. The projection is shown in Annexes 1 and 2 and summArized below: Additional Employment by Occupation (Including Attrition), 1972-83 Type of Worker Estimated Additions Professional 3,100 Technical 13,300 Administrative, managerial & executive 1,800 Clerical 10,400 Sales 16,000 Service 11,900 Skilled and semi-skilled 30,700 1/ The "ordinary" budget includes all recurrent expenditures excluding those directly related to development projects, which, together with capital expenditures, form part of the "development" budget. This feature of the Somali budget makes difficult an analysis of recurrent and capital budgets of the individual Ministries. 2/ The actual number reported during the survey was 87,000 which was adjusted to 108,400 to take account of some under-reporting of employment in small commerce, construction and transport.  -4- 2.07 In order to meet these estimated needs, the outputs from the edu- cational system are as shown in Annex 3 and summarized below: Requirements from the Educational System, 1972-83 Post-secondary Secondary Intermediate level level level Required outputs for: (a) labor market 6,300 15,000 35,000 (b) labor market corrected for participation rate /1 6,300 16,700 43,800 (c) higher education - 12,700 71,400 Total (b) + (c) 6,300 29,400 115,200 /1 Participation rates of 100% for post-secondary level, 90% for secondary level and 80% for intermediate level have been used. (See Glossary for explanation of participation rate.) The average annual outputs from the education system should therefore be about 600 at post-secondary or university level, 2,500 at secondary or grade 12 level and 10,000 at intermediate or grade 8 level. At present, annual outputs from the education system fall considerably short of these estimated needs. At the post-secondary level the annual supply is about 200, including graduates returning from studies abroad; at the secondary and intermediate levels, the education system produces some 1,500 and 5,000 graduates p.a. respectively. These figures point to the need for expansion at all levels. However, the estimates of needs summarized above provide only orders of magnitude as a guide to future absorptive capacity in the modern sector of the economy; in particular, due to the large share of the public sector in total wage employment in Somalia, future effective demand would be determined, to a large extent, by budgetary constraints and priorities. Therefore, expan- sion of education and training for wage employment needs to be carefully programmed in the light of all pertinent developments. 2.08 human Resources and Rural Development. In the last few years the Government has developed several programs to mobilize human resources for rural development in those parts of the country suitable for crop cultiva- tion. These programs include an extensive adult education scheme and estab- lishment of farmer training centers and women's education centers appropri- ately supported by agricultural mobile units and educational broadcasting. However, although these programs cater for up to one-third of the adult population in settled areas, they have only a limited impact on the incomes and living standards of the majority of Somalis.  -5- 2.09 Somalia has special characteristics which require rural development efforts generally different from those in other developing countries; nomadism is a national rather than a regional problem, and while the nomads are respon- sible for the major part of production and export - the livestock sector - provision of social and economic services to improve their productivity and living standards is made extremely difficult by their migratory patterns. Appendix 1 describes recent trends that are becoming apparent in migratory patterns and the programs law ched by the Government in the last few years to improve techniques of animal husbandry and herd management in livestock raising. These programs have received the support of several international agencies, including UNDP, EEC, FAO and IDA through the Trans-Juba Livestock project. The provision of grazing reserves, water supply, marketing, etc. needs to be complemented by the development of schemes to improve the skills and appropriately orientate the attitudes of the nomadic population. III. THE EDUCATION AND TRAINING SECTOR 3.01 Evaluation of the Sector. Somalia's education and training sector is described in Appendix 2 and basic data are given in Annexes 4 and 5 and Charts 1, 2, 3 and 4. In terms of numbers enrolled and enrollment ratios, the sector is one of the least developed of all developing countries, but since the adoption of the Latin script as the official script for the Somali language in 1971, the Government has given increased priority to the education system as reflected by rapid increases in enrollments and budgetary appropria- tions. 3.02 In addition, the Government has developed one of the most comprehen- sive schemes of nonformal adult education in Africa (Appendix 2, paras. 25-30); as indicated in para. 2.08> in 1973 some one-third of the adults in urban and settled areas were attending literacy classes and short-term courses in prac- tical skills, nutrition and citizenship. The resources at the disposal of the formal education sector, primarily the elementary school teachers, were used to implement these broader adult education schemes. 3.03 In spite of these efforts and achievements, only 16.4% of the eligible age group find places in grades 1-4 (elementary education), 9.3% in grades 5-8 (intermediate education) and less than 4% in grades 9-12 (second- ary education). Qualitative shortcomings are as acute as these quantitative weaknesses: (a) textbooks, teachers' guides and vocabularies in the official script are lacking; (b) over 60% of primary school teachers and a large pro- portion of the secondary school teachers are unqualified by Government's own standards; and (c) the introduction of new curricula with practical subjects is being impeded by the inadequacies of the available physical facilities.  -6- 3.04 Although there is evidence of improving quality during recent years, most school building are still below desirable standards. Maintenance is lacking, furniture and especially equipmenit are poor and inappropriate. Wide inequalities in educational opportunity exist at all levels of education: 65% of secondary school enrollments are concentrated around Mogadiscio and a further 18% around Hargeisa; female participation is only 16% in secondary schools. Due to its quantitative limitations, the formal education system is inherently elitist and this is contrary to the Government objective of developing a broadly-based participatory society. 3.05 Cooperation between the Ministries 1/ and agencies involved in educa- tion has shown a marked improvement in recent years, but in order to optimize educational developments and prevent unnecessary duplication of facilities with consequential misallocation of scarce human and financial resources, this cooperation is being further strengthened and expanded by forming multi- disciplinary inter-ministerial teams to coordinate related activities in rural areas. Within the framework of integrated development programs, greater impact would be made by education and training schemes oriented to the rural environment and designed to improve productivity and living standards, particularly of the nomads. Education Policy and Strategy 3.06 The objectives of educational development in Somalia are indicated in the draft outline of the FYDP, which has the following principal aims: (i) to improve access to education and expand educational opportunities; (ii) to reorient the content and increase the effectiveness of the educational programs; and (iii) to provide the country with the trained personnel which would meet the various levels and types of manpower requirements. 3.07 To improve access to education and expand educational opportunity, Government strategy gives equal priority to the growth of elementary educa- tion (grades 1-4) and to strengthening nonformal education. In particular, it is planned that enrollments in grade 1 will increase by 10% p.a. and that the proportion of the age group enrolled in grades 1-4 will increase from 16.4% in 1972 to nearly 50% in 1983. Such a rapid expansion of the elementary cycle will be facilitated by the use of the national language in lieu of Arabic as a medium of instruction at this level and by classroom building through self-help; the main constraint is the availability of teachers because, even after completion of the first IDA education project, training capacity will be only about 120 additional elementary teachers p.a. whilst an output of some 500 p.a. is required to meet enrollment targets. 1/ These include the Ministry of Education, Ministry of Culture and Higher Education, Ministry of Mineral and Water Resources, Ministry of Agricul- ture, Ministry of Health, Ministry of Fisheries and Marine Transport, Ministry of Labor and Sports, Ministi-y of Interior and Ministry of Livestock, Forestry and Range.  -7- 3.08 Because the planned expansion of formal education makes no provision for the education and training of the majority of young and adult Somalis, the Government plans to further develop its programs of mass functional literacy, women's education, farmer training and youth activities (para. 3.02). At present, these programs include: (a) a national literacy campaign which reached over 200,000 adults in 1973 following adoption of the official script for the Somali language; (b) farmer training centers and mobile farmers train- ing units having an impact on some 5,000 farmers; (c) women's education centers and community development centers catering for over 10,000 adults; and (d) summer youth camps for 9,000 adolescents. The multi-disciplinary teams referred to at para. 3.05 above will review the effectiveness of these programs anc their interrelations with regional development schemes in order to obtain the maxi- mum development impact from scarce resources. In addition, as the existing programs are almost entirely directed to people in settled areas, the Govern- ment plans to develop special training schemes for the nomadic population by: (i) improving Koranic schools (Appendix 1, para. 25) through the provi- sion of training and teaching kits to Koranic teachers; and (ii) the establish- ment of special training centers for nomads and their children. 3.09 To reorient the content and increase the effectiveness of the educa- tional programs, the Government plans to gradually replace Arabic, English and Italian with Somali as the medium of instruction at all levels of education as developments in the national language permit, to reduce the years of school- ing required for attaining literacy and numeracy and also to gear more closely what is taught to national culture and environment. An Academy of Somali Studies was established in 1973 to carry out the numerous tasks associated with the development of the script and the preparation of textbooks, but it lacks the necessary physical facilities to operate efficiently. In addition, the Govern- ment plans to further expand the curriculum reform initiated with the first IDA education project; in particular, the secondary school curricula, modelled after those once used in Italy and the UK, will be replaced by broader curricula with practical subjects being introduced in the 11 secondary schools of the first education project. Whenever possible, students of intermediate schools will be also taught practical subjects by making use of the facilities of the secondary schools in their vicinities. These developments will be phased with availability of instructors of practical subjects and are intended to provide the growing proportion of secondary and intermediate school leavers, who will not continue formal education, with a background for on-the-job training. 3.10 To meet requirements at the higher levels of employment, priority is given to the expansion of the National University from 1,400 to 4,600 student places (Annex 6) and to the establishment of a Polytechnic with a capacity of 800 students. These programs will be carried out with bilateral assistance from Italy and the People's Republic of Korea respectively and will amply meet estimated long-term needs of high level manpower in professional, technical and administrative fields. To provide a sufficient number of en- trants to higher education as well as an adequate supply of middle level manpower, projections of the MOE for the FYDP called for an expansion of intermediate and secondary education of 14% p.a. and 12% p.a. respectively.  -8- These projections have been reviewed by Bank Group staff in consultation with the MOE and the Ministries of Finance and Planning: if they are adopted as planning targets, the education share of the national budget would increase form 8% in 1973 to over 17% in 1983 and outputs from schools would exceed present estimates of needs for intermediate and secondary school graduates (para. 2.07) by about 18% and 12% respectively. Therefore, targets need to be revised as shown in Annex 7 to accord with financial limitations, availabil- ity of teachers, estimated manpower requirements and especially the high pri- ority given to, and consequent budgetary claims of, nonformal education. During negotiations these targets were discussed and the Association was ad- vised that Government's policy is to continuously review enrollments at all levels and adjust them so that supply would match estimates of skilled mn- power needs; from time to time exchanges of views between the Association and the Government on this point will take place. 3.11 In addition, Government's original proposals for the development of middle level manpower included the establishment of a 300-place Vocational Training Institute in Mogadiscio. In view of the small size of Somall industry, the existence already of as many as five institutes for industrial training (Appendix 2 para. 16), the planned establishment of a Polytechnic and, above all, the reorganization and improvement of the technical and vocational train- ing sector which is being promoted as a part of the first education project, the construction of the Vocational Training Institute should be deferred pend- ing the formulation of a plan for technical and vocational training in coordi- nation with industry. The Government is preparing such a plan which may form the basis for possible future Bank Group assistance. Financing Educational Development 3.12 All private schools were nationalized in 1972 and the Government took over all financial and administrative responsibilities for their opera- tions. Students at all levels now pay no tuition fees, but boarders contri- bute So.Sh.450 per annum to the cost. Since Independence, the recurrent budget of the MOE has been about 7% of the central government recurrent budget (Annexes 8 and 9) as shown below: In Millions of So.Sh. (est.) Recurrent Budgets: 1967 1969 1971 1972 1973 1. Central Government Budget 272.1 301.5 322.1 343.7 396.2 2. MOE & MCHE Budgets /1 18.9 22.7 23.2 22.4 31.9 2 as a % of 1 6.9 7.5 7.2 6.5 8.1 /1 The Ministry of Culture and Higher Education (MCHE) received its own budget for the first time in 1973.  -9- This ratio is substantially lower than those in neighboring countries mainly because of low enrollment ratios, and the high level of foreign assistance for recurrent expenditure as indicated by the large number of expatriate teachers provided under bilateral programs. 3.13 Based on the Bank Group staff's projected school enrollments (Annex 7) and National University development (Annex 6), the projection of future education recurrent expenditures in Annex 9 reflects the higher priority being given to the education sector (para. 2.05). An increased allocation is projected from the present 8% of Government's total recurrent budget to 15% by 1983, a proportion below that of neighboring East African countries as shown below: Ethiopia Tanzania Zaire Zambia (1973) (1972) (1970) (1973) Percentage of the budget devoted to education 19.5 21.0 20.7 17.4 The allocation of 15% of Government recurrent budget to the education sector by 1983 is therefore reasonable relative to other countries, and in view of the policy of greater priority to the sector is feasible. 3.14 Projections of future capital expenditure and of their financing are based on the enrollment targets summarized at Annexes 6 and 7. In partic- ular, during the period 1973-83, construction of elementary and intermediate schools is expected to require about So.Sh.150 million; the financial cost to the Government of such an expansion, however, would be no more than So.Sh. 70 million because communities are expected to provide free labor and local building material under self-help schemes. The cost of secondary school improvement and expansion (So.Sh.125 million) would be principally financed by multilateral and bilateral donors, including the first and the proposed second IDA projects. Expenditures for technical-vocational education (So.Sh.17 million) and at university level (So.Sh.25 million) are also expected to be largely met through foreign assistance. The strengthening of nonformal education for urban and settled areas would require virtually no additional capital expenditure as the Government would continue to use available school buildings for literacy and other nonformal education schemes, but a comparatively high capital cost (So.Sh.25 million) would be associated with the programs to reach the nomads and their children because of remoteness of location and need for extensive works (e.g., digging of wells); this cost would be financed as a part of the proposed project. In sum, during the 10-year period total financial requirements would be about So.Sh.260 million, of which over 50% would be financed by aid agencies; this compares with actual capital expenditures by the Ministry of Education alone of about So.Sh.11.0 million in 1972 and capital expenditures of some So.Sh.140 million, including foreign aid, from 1961 to 1971.  - 10 - IV. THE PROJECT Objectives 4.01 The proposed project would assist Somalia's strategy by: (a) establish- ing an elementary teacher training college and developing an Academy of Somali Studies in support of the Government's policy to promote basic education and re- duce illiteracy; (b) improving secondary education by the addition of facilities to schools to enable agriculture, fisheries, science and comm rce to be taught; and (c) providing rural training and other facilities for nomads. It would consist of: (i) Buildings, furniture and equipment for the following new institutions: Approximate Number of Student Places Type of Institution Existing Addit.onal Total One Academy of Somali Studies not applicable One Elementary Teacher Training College - 800 800 Ten Nomadic Training Centers - 1,600 1,600 (ii) Equipment for, improvements to and rebuilding, where required, of the following: Additional facilities to 11 existing secondary schools: 2,900 1,420 4,320 Totals 2,900 3,820 6,720 (iii) The cost of specialists' services for: a. development of a specialized secondary school, viz., the Fishery and Marine Institute; and b. strengthening of the Project and Schools Construction Units. The project schools would have a total of about 6,700 student places, of which 3,800 would be new places. These figures do not include attendance at short courses by adults in the Nomadic Training Centers which is estimated at some 2,000 p.a.  - 11 - Project Items 4.02 The Academy of Somali Studies was created under the direction of the MCHE in 1973 and has the following primary objectives: (a) development of the Somali language using Latin script on a scientific basis; (b) produc- tion of literature for mass readership laying emphasis on functional literacy; (c) documentation of collected oral literature in terms of poems, stories, history, folklore; (d) publication of documented materials for study at academic institutions and general readership; and (e) continuation of applied research in language, culture, science, and other relevant matters. The Academy is expected to become a key instrument for development of education in Somalia, particularly as regards the establishment of academic and other standards and the provision of advice to the Government on the impact of the introduction of Somali as the medium of instruction in the sector with special reference to: (i) the optimum length of each school cycle to achieve desired learning attainment through the use of national language; (ii) the effectiveness of the literacy and other nonformal programs; and (iii) the reorientation of teacher education and of courses for community development agents. In addition, it would have overall responsibility for broad cultural matters, including, when resources permit, the development of the existing National Museum and founding of a National Library. 4.03 As indicated in Appendix 2, paras. 4-6, Somalia already has a corps of competent scholars who would carry out the various activities of the Academy. These scholars have recently gained experience through the work of the National Language Commission and the preparation of textbooks for basic education and functional literacy. Their work has been greatly hindered by a lack of suita- ble facilities; at present, the Academy operates from make-shift offices in an old dwelling on the outskirts of Mogadiscio. The project would provide staff offices, seminar rooms, duplicating rooms, a reference library and other essential facilities. 4.04 The attainment of the Academy's objectives would greatly depend on its staffing and work program. A staff development program is under pre- paration; its draft features the provision of specialist services in areas such as linguistics, vocabulary development and nonformal education through bilateral technical assistance programs and the upgrading of Somali scholars abroad through fellowships also to be provided under bilateral aid. Progress in the preparation of the staff development program was discussed with the Government during negotiations. The work program for the first five years of operation of the Academy is being finalized. The Government confirmed its intention to exchange views with the Association on the work program of the Academy from time to time, and in particular, to provide the Association with the annual reports of the Academy. 4.05 The new Elementary Teacher Training College in Hargeisa would support a planned increase of enrollments into grade one of elementary schools of 10% p.a. The capacity of the college would be 800 students (400 boarding) in 2-year courses and the resultant output would meet teacher needs at this  - 12 - level (para. 3.07) until about 1985. In addition to expanding their academic subjects and receiving appropriate instruction in pedagogy, teachers would be trained in practical work such as simple agriculture, handicrafts and home economics. Also included in the teachers' training would be broader aspects concerned with civic leadership and other matters relevant to the wider role teachers are being called upon to fill as leaders of community development in support of Government policies to foster community development by using all schools as centers for these activities (para. 3.02). 4.06 The National Teacher Educational Center (NTEC) which is being ex- panded under the first IDA education project and is receiving technical assis- tance under a major UNDP/UNESCO Project (30 man-years of technical assistance and 16 man-years of fellowships) would provide an adequate supply of teacher educators to staff the College. As part of their training, future teachers would practice in elementary schools in Hargeisa and in rural areas. They I would also gain experience in community development centers and in women's centers of the region. 4.07 The ten Nomadic Training Centers (NTCs) would be experimental insti- tutions of two types - the first group of five directed to nomads in the remote areas, the second to partially settled areas. The NTCs would establish, by flexible school terms, the types of instruction best suited to the needs of nomadic youths (age 7-16) and adults, particularly in relation to promo- tion of livestock production. Each NTC would be fully boarding of 160 capacity; the youths would be given a four-year course especially oriented towards developing their capabilities in animal husbandry, agriculture, literacy and numeracy. For adults, literacy and nonformal programs such as personal and public hygiene, agriculture and animal husbandry, citizenship and community development would be organized. It is expected that at each NTC about 200 adults p.a. would attend courses. Community services in the nature of health clinics, veterinary, marketing and cooperatives services would be included as part of the NTCs. The Interministerial Nomadic Education Board which is being formed would regularly evaluate the NTCs and their ef- fectiveness, and the Government confirmed that for the first five years of operation of the NTCs, annual evaluation reports of the Interministerial Nomadic Education Board on the NTCs would be forwarded to the Association for review. 4.08 Education and training facilities for the nomads are at present negligible because about 83% of all schools are centered round Mogadiscio and Hargeisa (para 3.04) and nonformal education centers are located essentially in agricultural areas where population is settled (para 3.02). The proposed ten NTCs of capacity 1,600 trainees would be the only facilities directly available to the nomadic population who number about two million people. The Government would like to expand nomadic training facilities at a greater rate than is included in the proposed project, but before undertaking further major investments, it is necessary to establish clearly the type of training best suited to improving the nomadic way of life and ascertain the degree of accept- ance and demand for such training. Accordingly, in order to cover adequately the wide range of ecological conditions existing in Somalia and to cater for  - 13 - the different degrees of nomadism which vary from pure nomads through semi- nomads and with an increasing tendency for some nomads to settle, development of ten NTCs is considered as the optimum on which a meaningful controlled comparative series of experiments could be executed. 4.09 Because of the experimental nature of the NTCs, some risks are involved as to their ultimate effectiveness in improving the productivity and living standards of the nomads. In particular, effectiveness of the NTCs would greatly depend on their integration with other activities in support of rural development and improved livestock production (para. 3.05). For these reasons, special attention would be given to locating the NTCs in those areas of Somalia where inputs from several agencies are expected to increase rewards from animal husbandry and agriculture. The ten experimental NTCs would all be located in "grazing reserves," (Appendix 1, para. 16) where there are active range and livestock improvement associations; four of the NTCs would be located in the same area as the IDA-assisted Trans-Juba Lives- tock Project. Naturally, in spite of the NTCs integration with other devel- opment programs, a risk remains that nomadic youths, during or after completion of their four-year course, would migrate to urban areas. This might help social mobility but, at the same time, hinder full attainment of the basic objectives of the NTCs. Therefore, even though the NTCs are expected to have a substan- tial impact on livestock and agriculture provided that-at least 50% of the trainees in the four-year courses maintain their rural existence, the Inter- ministerial Nomadic Education Board should carefully monitor employment aspira- tions of the trainees as part of its evaluation of the NTCs (para. 4.07). 4.10 Special care would be exercised by the Government in the selection of teachers and instructors for the NTCs. They would be selected with a view to their familiarity with, and acceptance in a nomadic environment, and in order to ensure their greater credibility with the nomadic population, a pro- portion would be recruited from Koranic teachers and from the Nabaddoons (comiunity elders who serve as the contact between the administration and the nomads). After selection, the teaching staff would receive training for one year. In order to carry out the training in a rural environment, the Farmer Training Centers at Bonka and Aburein (Appendix 2, para. 27) have been selected as training centers; their present instructional staff would be suitably rein- forced with graduates from the University's Faculty of Agronomy, the Afgoi Agricultural Institute and the Training School for Animal Health Assistants. Both Farmer Training Centers generally have adequate facilities for the train- ees but additional instructional equipment would be provided as a part of the project. During negotiations, agreement was reached with the Government that appropriate teacher and instructor courses would be provided at these Centers and that details of these courses together with those to be operated at the NTCs would be sent sufficiently in advance to the Association to give its comments. 4.11 The Government is anxious that the NTCs should be flexibly designed, and the design should replicate the physical conditions of nomads so far as possible in order to lessen the risk of alienating the trainees from their environment. Because the adult nomads do not live for sufficiently long con- tinuous periods at the sites of the NTCs, it would be impracticable to employ  - 14 - self-help labor in the construction of the main facilities. However, it is planned to use self-help in the building of subsidiary facilities of a semi- permanent nature such as work shelters, cattle dips and livestock pens. 4.12 Secondary Education. The additions to ten existing general secondary schools and one specialized secondary school would enable the present purely literary curriculum to be replaced by the broader program promoted by the first IDA education project; this program places substantial emphasis on scientific and practical subjects. The scale of the additions in the general schools, which take the form mainly of adequately equipped workshops, science laboratories and domestic science rooms, would-be similar to developments at the 11 schools included in the first IDA education project, but the schools of the proposed second project would be mostly located in small towns and rural areas and thus improve equality of educational opportunity and add thrust to integrated rural development programs. An adequate supply of suitably trained teachers would be available from the NTEC (para. 4.06) where secondary teacher training courses are effectively operated. 4.13 At present, effective demand for secondary school graduates is so much higher than supply that the Government directs all graduates to essential work in the public sector. Outputs from the country's 26 general secondary schools (of which 11 are included in the first IDA project and 10 in the proposed second project) are unlikely to cause an oversupply of graduates in the foreseeable future. During 1972-83, all secondary schools would produce about 22,400 graduates as compared with an estimated need of 29,400 (para. 2.07). Further expansion of the schools to meet the estimated shortfall of 7,000 graduates should prudently be deferred until later this decade when the rate of assimulation of graduates into the economy will be more apparent. Such an expansion may form part of a future Bank Group project. 4.14 The Fishery and Marine Institute would be for 288 students of whom 80 would be boarding; it would replace existing old and derelict accommodation where 180 students are now enrolled and include one warden's house. The Insti- tute, to be sited near the new port area of Mogadiscio, would offer four-year courses (Grades 9-12) oriented towards providing basic preliminary training to enable graduates to be employed in coastal fishing, the merchant navy or the fish processing industry. It would be the country's only training institute of its kind and would be under the direction of the recently formed Ministry of Fisheries and Marine Transport. Probable developments in fisheries (para. 2.03) and related activities should ensure relevant employment for the Insti- tute's graduates. 4.15 Technical Assistance. To ensure availability of key personnel, provision for 16 man-years of technical assistance is included in the proposed project; of this, nine man-years would support development of the Fishery and Marine Institute and seven man-years would reinforce the Project and Schools Construction Units. For the Fishery and Marine Institute three experts each for about three years would be required: (a) an adviser to the Institute's principal on organization, administration, financial, curriculum development and other relevant matters; (b) an expert in navigation, seamanship and  - 15 - application of scientific techniques to sea-going fishery and marine vessels; and (c) an expert in marine engineering, workshop practice and related scien- tific matters such as elementary theory and practice of heat engines. Tech- nical assistance to the Project and Schools Construction Units is detailed at para 5.09. 4.16 Support for the proposed project would also be derived from other technical assistance experts now in post and being recruited. The principal group of experts assisting the first education project and available for this proposed project is a 16-man UNDP/UNESCO/ILO team who are engaged in teacher technical and vocational training, general and technical education planning and associated activities. About one-half of this team is in post and recruit- ment of the remainder is under way. Because ample fellowships for overseas training would be available on a grant basis either from UNDP, EEC or bilateral agencies, no provision for fellowships is included in the proposed project. V. PROJECT COST, FINANCING, IMPLEMENTATION, PROCUREMENT AND DISBURSEMENT Cost Estimates 5.01 Construction cost estimates have been derived from costs obtained following recent competitive bidding for schools in the first education project. The average cost per m2 in Mogadiscio is estimated at about US$88. These esti- mates take into account maximum use of local building materials and probability of awards for civil works to local contractors. The schedules of accommodation are economical and appropriate to student enrollments and modern curricula and generally result in a utilization factor of 70-80% for workshops and labora- tories, based on a weekly schedule of forty-two 50-minute periods. In the project secondary schools, fuller use of practical facilities would be assured because nearby intermediate schools would be able to use these facilities. Estimates of equipment and furniture costs are also based on recent information obtained during implementation of the first IDA education project. The esti- mated costs and foreign exchange component of the various parts of the project are given in Annex 10 and summarized below:  -16 - Details and Costinga of Proosed Soocud Education Project % Of Total So, Sh. (million) US$ (million) (includ- Lo