Honduras - Education Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 3936 PROJECT PERFORMANCE AUDIT REPORT HONDURAS FIRST EDUCATION PROJECT (LOAN 954/CREDIT 452-HO) May 21, 1982 Operations Evaluation Department This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  FOR OFFICIAL USE ONLY GLOSSARY CCTI -- Center for Technical Industrial Cooperation CIDA - Canadian International Development Agency CONSUPLANE - Higher Economic Planning Council DESARRURAL - Directorate of Rural Development DGCMEE -- Direccion General de Construction y Mantenimiento de Edificios Escolares (Ministry of Education - School Building Division) ENA - Escuela Nacional de Agricultura (National School of Agriculture) INFOP -- Instituto Nacional de Formacion Profesional (National Institute of Vocational Training) PGR -- Proveeduria General de la Republica de Honduras (General Procurement Office of the Republic of Honduras) UNAH -- National Autonomous University of Honduras This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  FOR OFFICIAL USE ONLY PROJECT PERFORMANCE AUDIT REPORT HONDURAS FIRST EDUCATION REPORT (LOAN 954/CREDIT 452-HO) TABLE OF CONTENTS Page No. Preface .......................................................... i Basic Data Sheet......................................................... ii Highlights .............................................................. v Comments from the Borrower ....................................... 1 PROJECT COMPLETION REPORT SUMMARY AND CONCLUSIONS ......................... .......... 9 Overview ........................................ .......... 9 Composition of the Project ................................ 9 Project Implementation .......................... .......... 9 Physical Aspects ............................. ............. 9 Educational Aspects and Operating Outcome ................... 10 I. INTRODUCTION ........................................ .. 13 II. PROJECT BACKGROUND ................................... . 16 Socio-Economic Setting .............................. .. 16 Sector Setting ............................. ........ 16 Project Generation .................................. 17 Project Objectives ................................ 17 Primary Teacher Training ............................... 17 Secondary Teacher Training .......................... 17 Vocational Training .............................. 18 Agricultural Education and Training .................... 18 III. PROJECT IMPLEMENTATION .......................... .... .. 19 Overview ...................................................... 19 Loan Effectiveness ......................................... 19 Project Management ......................................... 19 Education and Training Policy Implementation ........... 20 Sites ....................................................... 20 Professional Services ...................................... 21 Design of Facilities ....................................... 22 Construction .................................................. 23 Maintenance ................................................... 24 Procurement of Furniture and Equipment ...................... 24 Distribution of Furniture and Equipment ..................... 26 Technical Assistance ....................................... 26 Covenants ..................................................... 27 Bank Performance .............................................. 28 This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. TABLE OF CONTENTS (continued) Page No. IV. PROJECT COST AND FINANCES ............................. 29 Capital Cost .............................. ............ 29 Unit Space Allocation per Student ....................... 30 Project Operating Costs ................................. 31 Disbursements ........................................... 32 V. PROJECT OPERATING OUTCOMES ............................ 32 Attainment of Project Objectives ...................... 32 Primary Education ............................ ....... 33 Secondary Education ................................. 34 Agricultural Education and Training .................. 36 Vocational Training ................................. 37 Annexes 1 - Estimated and Actual Implementation Schedules ........... 41 2 - Compliance with Loan/Credit Covenants ...................... 42 3 - Incidence of Bank Group Supervision Missions ............ 45 4 - Estimated and Actual Costs .............................. 46 5 - Actual and Estimated Disbursement by Year ............ 47 6 - Profile of the Primary Teacher Training Schools 1979-1980 ........................................... 48 7 - Project Primary Application Schools Enrollments 1980..... 52 8 - Secondary Teacher Training College Enrollments 1980 and Enrollment Pattern - Projected and Actual ......... 53 9 - Secondary Application School Enrollments 1978-1980 ...... 55 10 - Secondary Application School Timetable .................. 57 11 - Secondary Application School Comparison of Timetable Loading, Lower Cycle, for Day and Evening Students ........................... ....... 59 12 - Agricultural Education ............................... 60 1. Agricultural Training Centers Summary of Activities 1978-1979 2. Secondary Agricultural School Enrollments and Dropout 1978-80 13 - Vocational Training Centers - Courses 1979 .............. 61 - 1 - PROJECT PERFORMANCE AUDIT REPORT HONDURAS FIRST EDUCATION PROJECT (LOAN 954/CREDIT 452-HO) PREFACE This report presents a performance audit of the First Education Project in Honduras (Loan 954/Credit 452-HO) for which a Loan of US$3.0 million and a Credit of US$3.0 million were approved on December 20, 1973. Credit and Loan funds had been fully disbursed by August 4, 1981 when the Loan Account was closed. The audit report comprises (a) a highlights section prepared by the Operations Evaluation Department and (b) a Project Completion Report (PCR) dated January 12, 1981 (and revised July 13, 1981), prepared by the Latin America and the Caribbean Regional Office following a mission in June 1980 to Honduras. Borrower staff accompanied the PCR mission on an extensive program of field visits, and assisted the mission by providing statistical data and participating in discussions on the project experience. No field visit was undertaken by OED in connection with this audit. The audit is based on a study of the PCR and material in the files of the Bankl/ relating to this project, including the Appraisal Report (No. 247a-HO) and the President's Report (P-1325a-HO) both dated December 7, 1973, the record of the Board discussion of this project on December 20, 1973, and the Loan and Credit Agreements (Loan No. 954-HO and Credit No. 452-HO), both dated January 9, 1974. Discussions have also been held with Bank staff associated with this project. In accordance with OED procedures, a draft copy of this report was sent to the Borrower for comment. An English translation of the com- ments received is reproduced on pages 1-5, and footnotes have been added to relevant sections of the PCR drawing attention to these comments. The PCR in its original form suffered from the limited staff time available for its compilation as well as from having been compiled before disbursements were completed. It has required some revision following dis- cussions with OED staff. Nevertheless, both from the educational and archi- tectural standpoints, it was more informative than most PCRs in the sector. On the basis of the limited review by OED, the audit finds no reason to disagree with the general findings of the revised PCR, which is thorough and balanced in its coverage of the project experience. Consequently, an audit memorandum has not been prepared; OED has contributed only a preface and highlights, and compiled key project data. 1/ The term "Bank," as used in this report, refers to both the Bank and IDA.  - 11 - PROJECT PERFORMANCE AUDIT BASIC DATA SHEET HONDURAS FIRST EDUCATION PROJECT (LOAN 954/CREDIT 452-HO) KEY PROJECT DATA Appraisal Actual or Item Estimate Current Estimate Total Project Cost (US$ million) 8.66 10.4 Overrun (%) 20 Loan Amount (US$ million) 6.0 6.0 Disbursed 6.0 6.0 Cancelled Repaid (to September 1981) Outstanding (as at September 1981) 6.0 Date Physical Components Completed 12/77 06/80 - Number of months since Loan Signature 48 months 78 months Proportion Completed by above date (Z) 88 100 Proportion of Time Overrun (%) 63 Institutional Performance Good Fair Cumulative Estimated and Actual Disbursements (US$ million) FY74 FY75 FY76 FY77 FY78 FY79 FY80 FY81 Estimated 0.02 0.30 1.57 3.96 6.00 - - - Actual - 0.18 1.10 2.16 3.89 4.78 5.51 5.85 Actual/Estimated (%) - 58 70 54 65 79 92 98 OTHER PROJECT DATA Original Actual or Item Plan Revisions Estimated Actual First Mention in Files 02/22/65 Government Application 02/73 Negotiations 10/29-11/01/73 Board Approval 12/20/73 Loan/Credit Agreements Date 01/09/74 Loan/Credit Effectiveness 04/09/74 04/08/74 Closing Dates 06/30/78 06/30/80 08/04/81 06/30/81 Borrower The Republic of Honduras Executing Agencies Project Implementation Unit within the Higher Council of Economic Planning Fiscal Year of Borrower January 1 - December 31 Follow-on Project Name Second Education Project Credit Number 777-HO Amount (US$ million) 5.0 Date of Credit Agreement 04/06/78  - 111 - MISSION DATA Month/ No. of No. of Man- Date of Mission Sent by Year Weeks Persons weeks/a Report Reconnaissance Bank/UNESCO 11/65 1.5 3 2.6 12/09/65 Reconnaissance Bank/UNESCO 02/71 1.1 2 1.6 02/12/71 Econ./Recon. Bank 02/71 0.1 1 0.1 03/09/71 Econ./Recon. Bank 06/71 0.1 1 0.1 06/16/71 Identification Bank/UNESCO 07-08/71 6.6 4 18.7 02/16/72 Econ./Recon. Bank 11/71 0.1 1 0.1 11/29/71 Reconnaissance Bank/UNESCO 09/72 1.9 3 3.6 11/21/72 Reconnaissance Bank 01/73 1.3 2 1.7 02/01/73 Preparation UNESCO 02-03/73 5.9 5 23.6 03/19/73 Appraisal Bank 03-04/73 5.7 5 19.0 12/07/73 Total 71.1 Supervision I Bank 03/74 2.8 2 (A,B) 5.6 04/16/74 Supervision II Bank 10/74 0.6 1 (B) 0.6 11/15/74 Supervision III Bank 04/75 0.8 1 (A) 0.8 12/12/75 Supervision IV Bank 06/75 0.6 1 (A) 0.6 06/27/75 Supervision V Bank 07/75 0.5 1 (A) 0.5 09/10/75 Supervision VI Bank 04/76 0.7 1 (C) 0.7 06/02/76 Supervision VII Bank 06-07/76 0.8 1 (B) 0.8 07/15/76 Supervision VIII Bank 07/76 0.5 1 (B) 0.5 08/02/76 Supervision IX Bank 08/76 0.5 1 (B) 0.5 09/07/76 Supervision X Bank 03/77 0.7 1 (A) 0.7 05/05/77 Supervision XI Bank 08/77 0.5 1 (A) 0.5 11/17/77 Supervision XII Bank 09/77 0.5 1 (D) 0.5 09/29/77 Supervision XIII Bank 05/78 1.4 2 (A,B) 2.8 11/15/78 Supervision XIV Bank 05/78 0.7 2 (A,B) 1.4 07/27/78 Supervision XV Bank 10/78 0.2 1 (A) 0.2 11/17/78 Supervision XVI Bank 02/79 1.8 2 (C,E) 3.6 04/03/79 Supervision XVII Bank 07/79 0.7 1 (E) 0.7 09/30/79 Supervision XVIII Bank 02/80 0.1 1 (A) 0.1 03/03/80 Total 21.1 Completion Bank 06/80 2.4 2 (A,B) 4.8 01/12/81 /a Estimated manweeks attributable to project. Note: A = architect; B = general educator; C agricultural educator; D = technical educator; E = engineer.  - iv - COUNTRY EXCHANGE RATES Name of Currency (Abbreviation) Lempira (L) Exchange Rates: Appraisal Year US$1 = 2L (Lempira) Current US$1 = 2L (Lempira) Completion Year US$1 = 2L (Lempira) ALLOCATION OF LOAN/CREDIT PROCEEDS (US$) Original Revised Actual Category Allocation Allocation Disbursement (08/09/78) (as of 08/04/81) I. Furniture and Equipment (a) For Part D of the Project 570,000 669,000 664,150.30 (b) For other educational and training institutions 1,110,000 1,577,000 1,853,897.68 (c) For the Project Unit 20,000 17,000 16,866.48 Sub-total 1,700,000 2,263,000 2,534,913.46 II. 'CIivil Works (including architectural consultants' fees) (a) For Part D of the Project 400,000 516,000 516,000.03 (b) For other educational and training institutions 1,770,000 2,410,000 2,236,834.50 Sub-total 2,170,000 2,926,000 2,752,834.53 III. Technical Assistance (a) For INFOP (Part G(ii) of the Project) 220,000 278,000 271,482.13 (b) For Other Purposes (Part G(i), (iii), (iv) and (v) of the Project 410,000 335,000 293,797.80 (c) For School Mapping (Part G(iv) of the Project) n.a. 14,000 10,099.35 Sub-total 630,000 627,000 575,379.28 IV. Fellowships (a) For INFOP (Part G(ii) of the Project) 180,000 68,000 73,139.00 (b) For Other Purposes (Part G(i), (iii), (iv) and (v) of the Project) 90,000 116,000 63,732.73 Sub-total 270,000 184,000 136,871.73 V. Unallocated 1,230,000 -- -- TOTAL 6,000,000 6,000,000 6,000,000.00  -v - PROJECT PERFORMANCE AUDIT REPORT HONDURAS FIRST EDUCATION PROJECT (LOAN 954/CREDIT 452-HO) HIGHLIGHTS Loan and Credit Agreements in respect of the First Honduras Educa- tion Project were signed on January 9, 1974, each providing US$3.0 million--a total of US$6.0 million or about 69% of estimated total project costs of US$8.66 million--to assist the Borrower in developing and consolidating primary teacher training, and in expanding and improving secondary teacher training, vocational training, and agricultural education and training (PCR, paras. 2.05-2.09). The project was substantially completed by June 1980. For its limited size, the project was unusually complex, involving two Ministries and an autonomous National Vocational Training Institution (PCR, para. 3.03). Seven different types of institutions, in the fields of both formal and non-formal education and training, were financed. The project has been implemented with a time overrun of about three years (PCR, para 3.01) and a cost overrun of only 20% - a creditable achieve- ment on the part of the project implementation staff, especially taking into account the complexity of the project, the Project Unit's internal difficulties (PCR, paras. 3.03 and 3.16) and the weaknesses of educational administration (PCR, para. 3.04). The PCR does, however, draw attention to the weaknesses of the procurement of furniture and equipment by the Project Unit (paras. 3.18-3.20) and is also critical of the shortcomings in Bank's supervision effort, particularly the insufficient use of staff specialized in technical and agricultural education (paras. 3.25 and 3.26). In broad terms, the project was a worthwhile investment and has been successful in achieving its main educational goals: new curricula and new teacher education courses have been introduced into primary education (PCR, paras. 5.03 and 5.05); the planned development program for the agricultural secondary school has been implemented (PCR, para. 5.10), and a common approach had been developed by 1979 in the non-formal agricultural training centers, including training in various courses related to rural development (PCR, para. 5.11). Similarly, the vocational and industrial training centers were meeting their intended purposes by producing more and better skilled and semi-skilled workers (PCR, paras. 5.12-5.15). The experience with quantitative outcomes of the project institu- tions has been mixed. Primary school enrollments have increased to more than double appraisal estimates; partly in consequence of this, the Borrower has accepted new primary teacher training colleges, established through private initiative in substandard facilities, and the total output of trained teachers - vi - now exceeds the demand for them (PCR, paras. 5.04 and 5.05). Thus the project primary teacher training institutions have had less impact than expected and the consolidation objectives have not been fully achieved. On the other hand, the enrollments in the secondary teacher training institution and its applica- tion (or teaching practice) school are, respectively, only 70% and 50% of capacity, resulting in a low output of graduates (PCR, paras. 5.06-5.09). The secondary agricultural school has an unexpectedly high dropout rate, and the 1980 output of graduates was only 56% of the initial intake (PCR, para. 5.10). The non-formal agricultural training centers have not worked entirely as planned, the courses in use are shorter than those originally planned, and enrollments are greatly in excess of appraisal estimates (PCR, para. 5.11). Apart from the apprenticeship courses, enrollments in the skill upgrading courses and basic skill training courses offered in two training centers were well below appraisal estimates; however, the courses offered by mobile training units made up for this difference in numbers. (PCR, para. 5.14). FORM NO. 788 (1-7 4) jIBRD LANUG SEVCSDl LI1 CONTROL No E--82682 February 2, 1982 ORIGINAL LANGUAGE: Spanish (Honduras) _ _ DP. OT). Eval. RN-R PS:kc Rev: OTS COMMENTS FROM THE BORROWER Technical Secretariat of the Higher Economic Planning Council Comayaqiela, Honduras EDUCATION PROJECT UNIT December 31, 1981 GOH-AIF-TT7 DUPE-342 Mr. Shiv S. Kapur Director Operations Evaluation Department World Bank Washington, D.C. Dear Mr. Kapur: I am pleased to enclose the comments prepared by the Education Project Unit on the Evaluation Report that you kindly sent us on the First Honduras Education Project (Loan 954-HO). These comments are based on experience gained during the execution of the First Education Project, which was financed trilaterally by IERD, IDA and the Government of the Republic of Honduras. We look forward to receiving, as promised, a copy of the final report to be distributed to the Executive Directors. Yours, etc. /s/ Marco A. Mendoza Fugon Director Education Project Unit GOH-AIF-TT Enclosure: as indicated.  - 3 - CMMENTS OX THE EVALUATION RFPORT ON THE FIRST HONDURAS EDUCATION PRCJECT LOAN 954-HO CREDIT 452-HO 1. Execution of the First Education Project, financed by the International Bank for Reconstruction and Development (IBRD), the International Development Association (IDA) and the Government of Honduras, was coordinated by a Project Unit attached to the Technical Secretariat of the Higher Economic Planning Council (CONSUPLANE). The responsibilities of this unit were set forth in the Loan and Credit Agreements signed on January 9, 19714 by the World Bank Group and the Government of Honduras. Chapter I, Article 1 of Decree-Law No. 30, dated October 7, 1965, containing the "Charter for the Higher Economic Planning Council", (Ley del Consejo Superior de Planificaci6n Econ6mica) states as follows: "The Higher Economic Planning Council is hereby established as the advisory and consultative agency for the legislative and executive branches. This council shall be attached to the Office of the President of the Republic and shall be responsible for formulating integrated economic and social development plans for the nation." Article 5 of said Decree establishes the responsibilities of CONSUPLANE, which consist primarily in studying, coordinating and recommending any administra- tive, legislative and tax reforms that are deemed necessary to promote the development of the national economy and to obtain the financing entailed. As the project included three components falling within the respective spheres of responsibility of two ministries (Education and Natural Resources) and one decentralized agency, the National Vocation Training Institute (INFOP), these became in effect the executing units while the Project Unit acted as coordinating unit, i.e. providing liaison between the Government of Honduras and the World Bank. This led to a highly complex situation, since the National Budget Law establishes the operating machinery for each public agency through its General Regulations for each fiscal year. It should therefore be made quite clear in the report that the Education Project Unit was specifically concerned with project coordination rather than project execution. 2. The Education Project Unit, as the coordinating unit for implementation of the First Education Project, was assisted by a Procurement Officer, whose appointment was full-time. This official's services were of immense value to the staff of the Ministries of Education and Natural Resources, and also INFOP, in preparing the lists of furniture and equipment they needed. The Procurement Officer worked in close collaboration with the professors and teachers of the schools involved in the Project in preparing these lists. However, he was obliged to resign for personal reasons and the Director of the Education Project Unit temporarily assumed responsibility for procurement given -4- the fact that the items to be procured were additional furniture and equipment already approved by IBERD. In other words, from the commencement of the First Education Project (1974) and until 90% of the procurement was completed, the Procurement Officer was actively involved. The remaining 10% of the procure- ment, a very small proportion in any case, was handled by the Education Project Unit on the strength of the experience gained, i.e. without the Procurement Officer. Our comments on the report in question hinge largely on the following: 2.1 The wish on the part of the Directors of the Primary Teacher Training Schools under the jurisdiction of the Ministry of Education, to purchase the furniture and equipment themselves. This was not feasible in view of the requirements of Honduran legislation (Law on General Procurement Office of the Republic) and also of the Loan and Credit Agreements with the World Bank Group (Guidelines for Procurement under World Bank Loans and IDA Credits, March 1977). 2.2 The lack of organization displayed by the Directors of the Primary Teacher Training Schools in failing to appoint a committee responsible for taking on-site delivery of the furniture and equipment procured, in accordance with the previously approved inventories, these lists having been handed over to them in the presence of World Bank officials at a meeting held for this purpose. 2.3 In order to be able to issue invitations to tender for the articles to be procured for the First Education Project, these items had first to be approved by the World Bank in accordance with the Loan Agreement. As soon as approval was received arrangements were made to proceed with international competitive bidding, as called for by the Bank Guidelines and the Agreement. It may be concluded from the above that there was a certain amount of negligence on the part of the Primary Teacher Training School authorities in failing to ensure that the teachers selected the furniture and equipment strictly necessary for their teacher training programs. To sum up, we feel that all of the items procured must have been acceptable to the institutions involved in the Project since it was they that prepared the lists of these goods or articles, with the assistance of the Procurement Officer, prior to their forwarding to the Bank for approval for international bidding and procurement leading up to the signing of the respective contract. 3. With regard to the physical aspects of the Project we should like to make the following observations: 3.1 We agree with the report that a 28-month delay in the procurement of a site for the Ministry of Education component (Tegucigalpa Coeducational Primary Teacher Training School), identified as Project No. 240, was a signifi- cant factor in the putting back of the project closing date and was due to political reasons, since the original site on which the school was to be built had been approved by the Bank along with publication of the call for bids, but -5- barely four days before the bids were due to be opened the Education Project Unit received instructions from the Ministry of Education to suspend this bidding competition and obtain a different site for the school. This meant new designs, a new call for bids and starting the bid evaluation, contract award and Bank approval process all over again. 3.2 Another factor to be taken into account was INFOP's decision not to accept the construction areas negotiated with the Bank in 1974, thus necessi- tating fresh negotiations between INFOP and the Bank that resulted in acceptance of the construction areas identified in the working papers. This, too, is felt to have contributed to the putting back of the closing date of the First Educa- tion Project. 4. The evaluation report states that several factors adversely affected project execution, viz: the lack of a sound professional dialogue between Bank staff and the Borrower; the limited participation of the liaison officers; the weak structure of the Executing Unit and the difficulties encountered by the Ministry of Education in achieving the education goals set. On the question of the limited participation of the liaison officers, we wish to point out that this was specifically due to the fact that these officials still had to attend to their regular work and responsibilities, so that although they did what had to be done as regards the technical aspects relating to each project executing unit and coordination with the Education Project Unit, they did so in a less than efficient manner because on many occasions they simply had to give priority to their regular duties. To sum up, the liaison officers were able to devote very little attention to the execution of the First Education Project for the reasons stated.  -7- HONDURAS FIRST EDUCATION PROJECT Loan 954/Credit 452-HO Completion Report January 12, 1981 Revised July 13, 1981 Regional Projects Department Latin America and the Caribbean Regional Office  -9- SUTMARY AND CONCLUSIONS Overview i. The First Education Project may be considered a qualified success. Despite complexities in the composition of the project prolongation of the final stages of the implementation process by some three years, and notable deficiencies in furniture and equipment procurement and distribution, physical aspects of the project were in large measure completed within the targeted period and at a cost appreciably close to appraisal estimates. Educational objectives as they relate to the project institutions have been substantially achieved, but in the wider context of the attainment of government-defined national development norms there have been some shortcomings. Composition of the Project ii. The project, which combined three middle-level manpower training components under different Government agencies, coordinated by a Project Unit under a fourth agency, was overly complex, specially in the context of a first Bank-Borrower operation in the education sector. In the future, pursuit of diverse project objectives to be implemented by various agencies should be weighed against the difficulty of coordinating and monitoring functions of the apex agency and the desirability of giving full responsi- bility of project implementation to the agency or ministry which also bears the responsibility for formulating and implementing educational objectives of the project (paras. 1.03 and 3.03). Project Implementation iii. Several factors adversely affected project implementation: lack of effective professional dialogue between the Bank staff and the Borrower; the limited participation of liaison officers; the weak structure of the Project Unit; and difficulties encountered by the Ministry of Education (MOE) in pursuit of declared educational objectives. Their impact on the several aspects of project implementation is discussed below (para. 3.03). Physical Aspects iv. There were some flaws in the design of the several educational facilities. These flaws could have been avoided if the Bank had insisted on the detailed educational and architectural briefs, together with the preliminary designs, and the Project Unit had heeded the professional advice of the Bank staff (paras. 3.09-3.11). v. A 28-month delay in the acquisition of one site of the MOE's com- ponent (the Tegucigalpa Primary Teacher Training School), accounted signifi- cantly for the postponement of the Closing Date of the project. In future education projects, the availability of sites should be established as a condition for loan negotiations or Board presentation (para. 3.06). - 10 - vi. Use of consultant architects in future projects should be weighed against the higher cost than the in-house services and the improvement required by existing construction divisions in INFOP 1/ and the ministries of Education and Natural Resources, to meet the demand for the construction of new schools and the proper maintenance of existing schools. Strength- ening of DCGMIEE 2/ is particularly important in view of the convenience of: (i) rationalizing the design of primary and secondary schools; (ii) estab- lishing criteria for the preferential use of local materials; (iii) devel- oping the further involvement of communities in the construction and maintenance of schools; and (iv) coordinating the procurement of furniture and equipment (paras. 3.07, 3.08 and 3.15). vii. While limited participation of liaison officers did not seriously affect the efficient implementation of the civil works program., it had signif- icant repercussions on the procurement process. Insufficient attention was given by liaison officers of the participating ministries/agencies to furniture and equipment technical specifications and distribution and installation procedures. The lack of a project unit Procurement Officer 3/ and Educator compounded the problems which subsequently arose. It is clear that: (a) coor- dinated management structures will succeed only if full-time representatives are accredited to the project implementation unit; (b) in default, overall responsibility and commensurate executive authority need to be vested in a suitably staffed implementing team within either each Ministry or the apex agency; and (c) the Bank Group should ensure that technical assistance is forthcoming throughout the procurement process. In the preparation and implementation of future projects, the Borrower and the Bank/Association will need to give more attention to furniture and equipment specifications and lists, and also to contract documents and procurement procedures, so as to ensure that procurement, installation, maintenance and spare parts services, instructional manuals in the language of the Borrower, and training programs in the use of more sophisticated equipment are properly and promptly implemented. The need for specialist services in this regard should also be assessed (paras. 3.16-3.20). Educational Aspects and Operating Outcome viii. The project successfully met many of its primary objectives: the expansion 4/ and improvement of primary education by the introduction of new curricula and teacher education courses; the redirection of secondary general 1/ Instituto Nacional de Formacion Profesional (National Institute of Vocational Training). 2/ Direccion General de Construccion y Mantenimiento de Edificios Escolares (School Building Division of the Ministry of Education) 3/ There were long periods without a Procurement Officer; furthermore, imple- mentation problems were often beyond the capability of one procurement officer. 4/ Limited in this project to 12 rural schools, these are being followed by a substantial input in the Second Education Project. - 11 - and agricultural education into more relevant work-oriented programs; the needs of industry for skilled and semi-skilled workers; and meeting the demands for increased educational opportunities in the rural areas. ix. However, in a number of instances broader educational objectives related to the project were not fully attained. Enrollments of the primary teacher training schools were permitted to increase in a deteriorating educational environment and their graduates encountered considerable wastage inasmuch as the new teaching positions were limited and many of the students were not committed to the teaching profession. Conversely, the Secondary Teacher Training College anid its seco-dary application school are signifi- cantly underutilized (30% and 50% underenrollment respectively), resulting in low graduation levels. The secondary agricultural school has a disturb- ingly high attrition rate, resulting in low internal efficiency and output. In regard to the agricultural training centers, the lack of an overall devel- opment strategy has resulted in duplication of training activities. Experi- mentation with teachers' housing in the rural areas and the sandwich vocational training courses should be implemented with greater caution in future projects (paras. 5.02-5.10 and 5.14(a)). x. It is recognized that the Bank Group's role in national policy implementation is circumscribed. Nonetheless, greater adherence to mutually agreed sector objectives of the project might have resulted from more regular supervision of, and a sustained and vigorous approach to these issues. In this context the input by educators during project implementation was insuf- ficient, while the provision of technical educators was seriously inadequate. Furthermore, the Bank/Association should have pursued with greater determina- tion (a) its requests that quarterly progress reports incorporate information on the status of project educational objectives; (b) the submission of the annual review of sector developments called for in Section 4.05(a) of the Loan Agreement; and (c) perceived deviations from the broader educational objectives related to the project. The role and specialisms of Bank Group educators in supervision missions should in future operations more closely match the complexity, content and management mechanisms built into projects; greater attention should be accorded to the attainment of broader sector objectives and policies (paras. 3.24 and 3.25). xi. The following measures should be considered to resolve the operating problems of the project institutions. As regards the primary teacher training schools, the government should (i) review annual demands for newly trained teachers and its financial capacity to create the new primary teaching posts needed to cover that demand; and (ii) require from students admitted to primary teacher training courses an obligation to enter the profession. In respect of the secondary teacher training college, steps should be taken to (a) attract more unqualified secondary teachers into in-service training courses; and (b) redress the imbalance between general and technical teacher training. As for the secondary application school the government and the parent secondary teacher training college should jointly (a) reorganize the school day, and take measures to expand enrollment in the lower cycle; (b) change the present policy of admitting to the upper cycle courses only graduates from the school's lower cycle courses; (c) restore to the school physical facilities and equipment presently utilized by the parent college; - 12 - and (d) appoint more, and full-time teachers to improve the quality of educa- tion, reduce class sizes and attrition rates. Lastly, respecting the agricultural training centers, the government should press on vigorously with the proposal to institute coordinating mechanisms to rationalize training activities (paras. 5.06, 5.07 and 5.11). xii. Consideration should also be given to a review of the experimental curricula presently being used in the primary teacher training schools and in the application secondary school. The former could be improved by a redistribution of content, to give more continuity to subject areas, and by more sustained emphasis on teaching practice. The government would welcome Bank/Association support for this evaluation, which might be afforded through the technical assistance component of the ongoing second education project (Credit 777-HO), the major component of which is the expansion and improvement of primary education. The upper cycle academic and commercial courses offered by the secondary application school require better articulation and a more balanced content (paras. 5.03 and 5.09). xiii. The Ministry of Education should also exercise more direct respon- sibility for sector developments in general, and specifically in the fields of primary and secondary teacher training policies (paras. 5.04 and 5.06 respec- tively). - 13 - I. INTRODUCTION 1.01 This Project Completion Report reflects the findings of a project completion mission, comprising one architect and one general educator, which visited Honduras between June 12-27, 1980 for a total of 17 man/days. The mission was assisted in the collection of statistical data by project unit staff, some of whom also accompanied mission members on an extensive program of field visits. 1.02 Field visits encompassed 15 of the 25 project institutions representative of the three distinctive components of the project (primary and secondary education; agricultural education and training; vocational training). One nonproject primary teacher training school was also visited. 1.03 In consonance with its terms of reference, the mission sought to review the project generation and implementation process as developed and executed by the Borrower and the Bank/Association, and to compare the objec- tives, assumptions and implementation targets of the project as conceived during appraisal, and in the relevant Loan/Credit agreements, with the actual results achieved. The information sources on which this report is based derive from (a) data (correspondence, progress reports, the supervision and appraisal report and relevant Loan/Credit documents) available in the Bank; (b) field visits; (c) interviews with government officials, principals, teachers and students; and (d) a review of questionnaires previously sent to the project unit and project institutions. - 14 - 1.04 The project comprised the following components: (a) Physical facilities (construction, furniture and equipment) Total New New Student Boarding Type of Institution No. Grades Places Places Enrollment Primary Teacher Training (Part A) Primary Teacher Training Schools 4 2/ 10-12 1,450 560 2,000 (Part B) Rural Application Primary Schools 12 1-6 960 72 3/ 960 (Part C) Secondary Teacher Training Secondary Teacher Training College 1 13-16 800 - 1,600 Application Secondary School 1 7-12 420 - 840 (Part D) Vocational Training Vocational Training Centers 2 - 510 - 8,490 4/ Industrial Training Development Center 1 - - Agricultural Education and Training (Part E) Agricultural Secondary School 1 5/ 10-12 190 100 240 (Part F) Agricultural Training Centers (non-formal) 3 - 150 150 2,000 25 - 4,480 882 16,130 1/ New institutions except where otherwise indicated. 2/ Two new, two extensions. 3/ Residential facilities for 48 visiting teacher trainees and 24 resident teachers. 4/ Course duration of variable length. 5/ Extension. - 15 - (Part G) (b) Technical Assistance. 23.5 man/years of expert services -d 46 man/years of fellowships distributed as follows: ------Man/tears------ Field/Organization Experts Fellowships Ministry of Education (MOE) (i) Central Organization and Administration 2.0 - (ii) Primary Teacher Training 6.0 6.0 (iii) Secondary Teacher Training (7.0) 1/ (16.5) 1/ Ministry of Natural Resources (MNR) 8.5 30.0 INFOP 6.0 10.0 Project Management 1.0 - 23.5 1/ 46.0 1/ 1/ Excluding Secondary Teacher Training technical assistance for which funds had been allocated in UNDP/Honduras Country Program. - 16 - II. PROJECT BACKGROUND Socio-Economic Setting 2.01 With an average per capita income in 1971 of about US$290, 1/ Honduras was the poorest country in Central America. The years immediately preceding project identification, 1965-68, had witnessed a modest annual growth of 4,7% in real GDP; between project identification and appraisal (1969-72) the economy suffered a setback, with per capita income in real terms growing at the average annual rate of only 1.2%, the consequence of a series of natural disasters which adversely affected agricultural production, the mainstay of the economy, and the negative effects on industry of the conflict with El Salvador. Stringent fiscal measures imposed by the Government which took office in December 1972 brought about an upturn in the economy which enabled the administration to embark on a progressive development policy, including substantial investments in the social sectors, specifically in the areas of education and training. Sector Settinj 2.02 Salient characteristics of education in Honduras in 1972-73 were: (a) at Erimary lel: inadequate (81%) coverage, particularly in the rural areas; internal inefficiency, with low completion rates (overall, 18%; in rural areas, 8%), largely the result of incomplete schools (63% of the total); inadequately trained teachers (including 22% untrained); irrelevant curricula, rigid examination and promotion policies; and an uneconomically fragmented and qualitatively deficient system of primary teacher training; (b) at secondary level: equity and access problems stemming from the dominance of the private fee-paying sector (absorbing 74% of all enrollments); a largely (88%) untrained teaching force; outdated curricula unresponsive to manpower needs, especially in respect of technical and agricultural education, which in 1972 enrolled only 1.7% and 1.1%, respectively, of all upper secondary students; the imbalance between enrollments in primary teacher training (23.5%) and commercial/ secretarial courses (48.6%) and employment opportunities; and uneconomically small and ill-equipped primary teacher training courses dispersed in 47 secondary schools; (c) at post-secondary level: the inadequacy of secondary teacher training programs, which between 1959-72 had graduated only 638 students, an average of 46 per year; and (d) in the non-formal sector: limited development of education and training programs for artisans, skilled workers, supervisors and managers for both the industrial sector and the implementation of the Agrarian Reform Law, the latter with its implications for farmer training and community development extension services. Finally, the administration of education was weak, overcentralized and inadequate in management procedures, giving rise to duplication of services, unclear personnel policies and inadequate financial control. 1/ According to World Bank Atlas. - 17 - Project Generation 2.03 The Bank's earliest involvement in education in Honduras dates from early 1969 when a sector analysis was undertaken, subsequent exploratory discussions taking place during the economic mission of July 1970. From this mission there materialized a formal request in January 1971 from the Borrower's Planning Department for a sector mission. Project generation required nine missions, mounted between February 1971 and March/April 1973, starting with the Bank/UNESCO reconnaissance and ending with the Bank/IDA appraisal. 2.04 After a somewhat hesitant start to project generation, attributable to the expected delays associated with the election process, and the learning and settling-in phase of the new government which came to power in December 1972, project formulation and appraisal proceeded smoothly and amicably, with few substantive changes in content and financing arrangements. Chief among these changes were: (a) Bank/IDA agreement to include an additional (fourth) primary teacher training school (in Tegucigalpa), together with its associated three small primary practice schools (the earlier concept of one larger primary practice school for each teacher training school had been modified to three small primary schools each, in order (i) to provide deprived areas, principally rural, with basic education facilities; and (ii) to afford teacher trainees with opportunities for teaching practice, specifically in multigrade teaching techniques, and experience in community development in the rural setting); and (b) the substitution of blend financing (50% IDA Credit and 50% Bank Loan) for a purely IDA operation, given the limited IDA funds available for this project. Negotiations were expeditiously completed (October 29 to November 1, 1973), and the Loan/Credit was approved by the Executive Directors on December 20, 1973, signed on January 9, 1974, and became effective on April 8, 1974. Project Objectives 2.05 The project was intended to support and strengthen the following four most critical areas of the Government's strategy for education and training: primary teacher training; secondary teacher training; vocational training; and agricultural education and training, including extension services. 2.06 Primary Teacher Training. The system would be rationalized and concentrated on four institutions specialized in teacher training to make it more cost-effective; pre-service enrollments would be limited to a total of about 2,000 with an estimated annual output of some 600 graduates in order to rectify the excess supply situation; training programs would embody the recently adopted new curriculum oriented towards community leadership, rural development, pre-primary and adult education, as well as the teaching of basic technical and agricultural skills. Courses would include training in multi- grade teaching techniques; the associated rural primary application schools would provide opportunities for teaching practice in all the above areas. 2.07 Secondary Teacher Training. New facilities would provide for an enrollment of approximately 1,600 students in two shifts and an annual output of some 350 graduates. To restrain the expansion of secondary education within acceptable recurrent-cost limits, in-service training would be emphasized, - 18 - though some pre-service courses would also be offered. New curricula would be developed, in particular to diversify training programs to cover the need for trained secondary technical teachers. A new secondary application school for 840 students in two shifts would provide opportunities for curriculum experi- mentation, and for teaching practice in all secondary school disciplines. 2.08 Vocational Training. Two new vocational training centers would provide courses at apprenticeship, skill upgrading and basic skill training levels in a wide variety of industrial skills. In all, some 8,430 workers would be trained annually in these programs. A further 2,000-3,000 workers would receive in-plant training, for which an Industrial Training Center would be created to identify training needs, plan and implement in-plant programs and develop trade profiles and certification techniques. The INFOP, which had been established shortly before appraisal, would be responsible for these programs. 2.09 Agricultural Education and Training. (a) Formal Agricultural Education. The expansion and reorganization of an existing agricultural school from 100 to 240 student places, with an annual output of 70 middle level technicians, would improve the quality of agricultural education by (i) revising the curriculum so as to emphasize technical aspects; and (ii) staffing the school with appropriately qualified teachers. (b) Agricultural Training Centers. Three new centers, each with 50 residential places would offer non-formal courses to (i) farmers, in agriculture, cooperatives, marketing and credit; (ii) rural housewives, in home economics; (iii) youth, in rural development activities; and (iv) extension staff. A total of about 2,000 persons would be trained annually. These programs would be administered by the Ministry of Natural Resources. - 19 - III. PROJECT IYPLEMENTATION 3.01 Overview. Loan/Credit documents established December 31, 1977, as the anticipated project completion date, and June 30, 1978, as the Closing Date. Implementation at first progressed well, to -e extent that civil works of 22 (88%) project institutions were completed by e original Closing Date, but subsequently complications in the acquisition or a site for the Tegucigalpa Primary Teacher Training School, delays in procurement of equipment and in the technical assistance program significantly slowed project completion. A first postponement of the Closing Date by one year (to June 30, 1979) proved insuffi- - cient even for the civil works program, which was completed only towards the end of the second postponement (to December 31, 1979). Slowness in procurement and disbursement necessitated a third postponement, to June 30, 1980, to finalize the procurement of about USSO.3 million of equipment and allow for the disbursement of the balance of the Loan/Credit account amounting to US$0.5 million; a further extension to June 30, 1981 is being formalized in order to complete disbursement. The implementation period thus extended over seven years, approximately three years longer than originally estimated (Annex 1). Loan Effectiveness 3.02 Conditions for Loan/Credit effectiveness--the establishment of a Project Unit and the appointment of the Project Director and Project Architect/ Engineer (Section 3.01(c) of the Loan Agreement)--had already been met by the Loan/Credit signing date (January 9, 1974). The only remaining condition of effectiveness was the execution and delivery of the Loan/Credit Agreement on behalf of the Borrower. Satisfactory evidence to this effect having been furnished to the Bank/Association, the Loan/Credit was declared effective on April 8, 1974, one day prior to the original terminal date for effectiveness (Sections 8.02 of Loan and 6.02 of Credit Agreements). Project Management 3.03 The complexity of this first Bank Group education project in Honduras, involving two ministries (Education and Natural Resources) and INFOP, and five distinctive education/training sub-sectors, raised substantial doubts as to the likely effectiveness of a Project Implementation Unit. Final justification of, and agreement to the creation of a project unit, were based on the proposi- tion that the Unit would exercise mostly a liaison function, and be involved in maintaining relations between the ministries implementing the project and the Bank, especially regarding procurement and accounting, as opposed to the more conventional form of Project Unit.1/ In furtherance of this proposition the strategy adopted consisted of the appointment by each of the concerned ministries, and by INFOP, of a Liaison Officer who would be responsible for the implementation of the technical and educational aspects of the project, and whose activities the Project Director would coordinate. In retrospect, this policy, supported by the Bank Group as the only practicable solution in the context of so complicated a project, appears to have been overly sanguine; its success would have called for a stronger and better staffed Project Unit, an identity of purpose between the Liaison Officers (and their respective ministries/agencies), the Project Unit and the Bank/Association, and a close 1/ Comments from the Government amplifying this part of the report are included in pages 1-5. - 20 - and ongoing collaboration among these entities in monitoring the implementation process. In the event liaison proved to be sporadic, and coordination weak, to the detriment of the attainment of project objectives in general, and of procurement in particular (paras. 3.15-3.18).l/ In this latter regard, the inclusion of a Project Unit Educator, trained in facilities planning, might have proved more effective in ensuring that furniture and equipment required for the project institutions be more appropriate for the educational programs, and procured in more timely fashion. Education and Training Policy Implementation 3.04 The Appraisal Report emphasized the deficiencies of educational administration, specifically in regard to overcentralization, inadequate management procedures, and financial control, and weaknesses in coordination between ministries and agencies involved in education and training, leading to duplication of programs and escalating costs. The Government was said to be aware of these problems and to be planning a regionalization of education administration. Unesco/UNDP was providing assistance to the Government to strengthen education planning; the Loan/Credit included specialists' services for the preparation and implementation of the proposed administrative reform. 3.05 The outcome of the assistance provided was mixed. In respect of internal organization and administration at Ministry level, substantive gains were achieved. The major problems, dispersion of Ministry officials in various buildings, making communication and consultation difficult, and overcentraliza- tion, with imprecise definition of areas of responsibility, were substantially resolved. Ministry staff were relocated in remodelled premises; the functions of the respective Directorates were more clearly defined, and specific respon- sibilities delegated to them, leading to a marked improvement in administrative efficiency. On the other hand, the planned reform of the system has not yet transpired. The system remains both highly centralized, preempting rapid decision-making at local levels, and disarticulated, with only limited effec- tive liaison between the Ministry of Education and other ministries/agencies involved in the educative process, resulting in the duplication and/or under- utilization of services apparent in the implementation of the project under review. Lastly, the delicate relationship of the MOE with teacher and student organizations and pressures of social demand have limited the achievement of planned educational goals and strategies (rationalization of primary and secondary teacher training, and enrollment criteria), on which the formulation of the project rested. Sites 3.06 The following problems were noted in the MOE component: (i) a combination of financial constraints in the acquisition of a new site and the unacceptability to the Bank/Association of a succession of Ministry-owned sites, resulted in a delay of 28 months before agreement was reached on the location of the Tegucigalpa Primary Teacher Training School;l/ and (ii) there is a growing problem in regard to the Tegucigalpa Secondary Teacher Training 1/ Comments from the Government amplifying these parts of the report are included in pages 1-5. - 21 - College and the Application Secondary School complex: the site, of limited size, was subsequently reduced by about 13% due to the construction of a new freeway on the rear edge of the complex. The noise and vibration caused by the steadily increasing volume of traffic represents a hazard which should be carefully monitored. Site problems may be considered minimal in respect of the MNR and INFOP components, suitable sites having been selected by loan effectiveness or expeditiously acquired. However, in the interest of future expansion, INFOP selected sites for its training centers which were vastly (500%) in excess of the areas recommended in the Working Papers. Professional Services 3.07 The Ministry of Education relied on its own construction division ("Direccion General de Ccnstruccion y Mantenimiento de Edificios Escolares" - DGCMEF) to prepare the designs and supervise the construction; the Ministry of Natural Resources and INFOP each made use of a (separate) consultant firm. The performance of DGCMEE and the two consultant firms, notwithstanding the comments that follow, was generally acceptable. 3.oR The professional services were developed in the following way in each entity: (a) Ministry of Education. DGCMEE's long experience, since 1955, ensured a prompt start to the design and construction of most of the 10 MOE project items. However, the recruitment of additional staff to supplement DGCMEF's limited manpower resources was only partially effective. Hence, there were gaps in the architectural briefs and furniture lists. Otherwise, DGCMEE's performance was satisfactory. A decisive factor in this regard was staff stability throughout the implementation of each project item, even though subsequently the project team was lured away by the more attractive salaries offered by the private sector. DGCMEE will require a competitive salary and staff establishment structure if it is to fulfill its functions as the facilities planning, construction and maintenance agency of the MOE. (b) INFOP. The Honduran consultant firm competitively selected by INFOP produced good design work, and was subsequently awarded the construction supervision contract, though only after protracted negotiations (6 months each) to which the Bank Group contributed with strenuous though unavailing urgings to renegotiate the contract price, which at US$140,400 was almost double appraisal estimates (US$70,190). Design work included preparation studies for future expansion of facilities far beyond the size considered in the appraisal report. - 22 - (c) Ministry of Natural Resources. The consultant firin's performance was creditable although the fees negotiated with MNR provoked a further adverse reaction from the Bank/Association; again, design and supervision contract prices, at US$129,500 were 222% of appraisal estimates including contingencies (US$58,400), due mainly to the delay in implementation. Design of Facilities 3.09 Ministry of Education. Designs for these project items were based on architects' briefs which had considerable gaps, due to the limited partici- pation of MOE, which was originally supposed to provide the necessary input in their preparation. Furthermore, no assistance was available from the Project Unit since it did not include a project educator, and the project engineer had no experience in preparing briefs. This situacion was especially significant with regard to the Secondary Teacher Training College, where a number of modifications became necessary due to insufficient information about their operational requirements during the design period. Except for the Secondary Teacher Training College, which was designed in several multi-storied blocks, and is satisfactory, all other designs prepared by the Ministry's staff are simple one-storey buildings with single-loaded corridors, which are suitable for Fonduras' climatic conditions. Site plans and grouping of accommodations in all three primary teacher training schools and the Tegucigalpa application secondary school are acceptable. However, the following less than satisfactory aspects were noted: (a) the study for the interior arrangement of workshops was based on deficient information; its electrical lines were improperly designed and required extensive improvement several months after the schools had been in operation; (b) in designing the remodeling and expan- sion of two primary teacher training schools, insufficient attention was given to the construction joints which provide the linkage between existing and new facilities and has resulted in fractures in some of these 4oints. This situation has not been resolved due to the shortage of funds for maintenance, which are virtually non existent (para. 3.15); and (c) basic features of secondary school classrooms were utilized with superficial revision by DGCMEE in the designs for the application primary rural schools, which should have been much simpler; for example, ceilings, which are difficult to maintain and are far from essential, remained in the revised specifications. Unnecessary expenditures in the construction of ceilings are due mainly to deficient architects' briefs and poor communication between the MOE's liason officer and the DGCMEE. If Bank/IDA had requested detailed architectural briefs prior to the review of sketch designs, the above-mentioned misjudgements of DGCMEE might have been avoided in the preparation of execution drawings. 3.10 Ministry of Natural Resources. Designs for the remodeling and expansion of the Escuela Nacional de Agricultura (ENA) in Catacamas and three Agricultural Training Centers, in Catacamas, La Esperanza and La Lujosa are generally satisfactory. However, in regard to the ENA, the conversion of the existing one-story teaching block into boarding facilities is less than satisfactory. More generous use of clerestory windows would have offered adequate illumination and ventilation to the 12-meter-wide building. The use of some facilities has been changed temporarily due to the recrganization of - 23 - the school, now operating at post-secondary level. The design of the rural training centers is good, although in the context of their intended use some specifications are not adequate; for example, window mechanisms are not strong enough. 3.11 INFOP. Designs of the two vocational training centers (Tegucigalpa and San Pedro Sula) and the Industrial Training Development Center in Tegucigalpa are suitably simple and practical.. As required by INFOP's ambitious expansion objectives (defined after the date of effectiveness of the Loan/Credit), the consultant firm prepared site plans for both vocational training centers which included provision for a future three-fold expansion, instead of the 30% recommended by the appraisal mission. 1/ Facilities for the Industrial Training Development Center are well articulated within the Tegucigalpa Training Center site. Construction 3.12 Although the execution of civil works was started in December 1974, or three months earlier than anticipated in the Appraisal Report and progress achieved by the original Closing Date represented 88% of the total, civil works were not completed until July 1979, 21 months later than the Appraisal Report projection. In all, construction took 48 months, instead of 30, or 60% longer than initially calculated. The main reason for this delay was the lack of funds for the acquisition of the site for the Primary Teacher Training School in Tegucigalpa (para. 3.01). 2/ 3.13 During the project generation period, procurement practices and resources of the construction industry were virtually disregarded by the first seven missions; the UNESCO preparation mission dealt with the matter only in general terms. As a result, the appraisal mission decided to require ICB procedures for all construction work other than the 12 small rural schools, and this proved to be impracticable. The cost of project items ranged between US$100,000 and US$600,000 and it was not possible to group them in sizable packages; consequently, only local construction firms responded to prequalifi- cation invitations. Six firms were prequalified in the first phase of bidding, and in subsequent phases the number reached 19. In every case the contract was awarded to the lowest bidder. 3.14 The performance of the contractors was generally satisfactory. The only problem was nonfulfillment of one contract, since the contractor for the San Pedro Sula Vocational Training Center miscalculated the time required to extend the contract in order to build additional facilities requested by INFOP, and failed to complete the revised contract on time. 1/ At the time of appraisal INFOP, a recently established entity, was in no position to discuss the expansion of its system; thus the appraisal mission considered that future expansion could be developed by increasing as necessary the number of training centers similar to those in the project. However, while sketch designs were being prepared, INFOP decided that designs for both project training centers should take into account the expansions to be made in the period of 20-30 years. 2/ Comments from the Government amplifying this part of the report are included in pages 1-5. - 24 - Maintenance 3.15 Section 4.04(b) of the Loan Agreement established the commitment of the Borrower for proper maintenance of project institutions. Powever, extremely limited budget allocations continue to hinder the maintenance services of the Ministries of Education and Natural Resources. This situation has been noted in the three project schools that were remodeled and expanded, which have unresolved maintenance problems due to the virtual lack of funds for undertaking necessary repairs and improvements. There are no guidelines for maintenance of project furniture and equipment, thus corrective action is dependent upon sporadic initiatives of school principals. Procurement of Furniture and Equipment 1/ 3.16 In accordance with Fonduran laws, the purchase of furniture and equipment was carried out through the only authorized agency, the "Proveeduria Ceneral de la Republica" (PGR) adopting ICB in principle. Unforeseen problems arose in procurement because: (a) the Project Unit did not have adequate staff to deal with PGR in regard to procurement matters; 2/ (b) the partici- pation of liaison officers was poor due to time limitations; and (c) the turnover of PGP upper-level management staff resulting from government changes gave rise to differing interpretations of its rules and regulations. 3.17 Furniture. Among the less than satisfactory aspects of furniture procurement it should be noted that: (a) The Ministry of Education staff did not give enough attention in preparing lists of desks, tables, chairs and lecture (writing arm) chairs to the ages of the users or their intended use. One uniform size was procured for all Ministry of Education project institu- tions; one type of very large, poorly constructed and finished table was indiscriminately ordered for libraries, shops and specialist rooms. In some cases the tables are too high for the intended use; in others the tables are too large to fit into the areas provided, or to leave reasonable circulation spaces. Bank/IDA supervi- sion missions suggested necessary changes, but they were not incorporated in the final bidding documents. (b) Ouality and design of furniture procured for the Ministry of Education are for the most part poor. Table surfaces are unsuitable for the distinctive uses for which they are intended; chairs, especially the lecture (arm) type, are fragile. 3.18 The first phase of furniture bidding included all Ministry of Education items. At the time tenders were evaluated, PGP proposed to make an evaluation strictly on the basis of price, and the Bank approved PGR's position, with the understanding that MOE and the Project Unit would closely 1/ Comments from the Government amplifying this part of the report are included in nages 1-5. 2/ PIU staff was insufficient to compensate for the inadequate participa- tion of MOE and MNR. - 25 - supervise the quality of the furniture to be manufactured. On several occasions the Project Unit unavailingly raised objections to one of the lowest bidders, emphasizing its questionable performance in other contracts, but the MOE and the Bank/IDA did not heed the warning. This bidder was nevertheless, contracted for 20 items (out of 70) which represented 34% of the value of the furniture list, with very poor results. The situation worsened because supervision by the Ministry of Education and the Project Unit of furniture contracts was largely ineffective. Although samples were manufactured and approved at an early stage, manufacturing plants were seldom visited and at a late stage, the Project Unit's demands for legal action against the controver- sial supplier to require him to repair defects were not backed by the Ministry of Education. In subsequent bids, on behalf of INFOP and the Ministry of Natural Resources, the Project Unit took some precautions with respect to the evaluation of bids and thus managed to obtain better results. In spite of these measures, overall supervision by the Project Unit continued to be weak. 3.19 Equipment. Procurement under the PGR could have been greatly improved if implementing entities and/or the Project Unit had had detailed technical and educational specifications to minimize the risk of misjudgment during the bid evaluation process. Not enough attention was given to delivery and distribution (para. 3.20) as well as to the establishment of a reasonable stock of spare parts. (a) Equipment Lists. Preparation of equipment lists demanded contributions from a group of specialized teachers, but they worked only part time since they were performing their regular duties simultaneously. Furthermore, preparation of equipment lists for ICB was a new experience for many teachers, and this caused some errors and longer preparation periods. The Project Unit had no resources for effective coordination of, and assistance to working groups of teachers which would have expedited, as well as improved, their work. 1/ More monitoring of equipment lists preparation by the Project Unit was desirable to ensure that the level of sophistication corresponds to the teaching objectives of the institution. For example, primary teacher training schools (and especially the girls' school) do not require industrial arts shops with lathes, electric saws, grinders and drills with which they were supplied; the same might be said for the large swivel drafting tables which were uniformly provided for these same schools. The hand tools provided, however, are excellent, appropriate and extensively used. (b) Delivery and Installation. Not all equipment has as yet been received in the project institutions and there are notable examples of serious deficiencies in home economics and sciences. Some equipment has not been installed and/or 1/ Although the project provided for technical assistance for this purpose, the Borrower cancelled the relevant contract (para. 3.23(a)). - 26 - connected, mainly because services (gas, water or electricity) have not been provided. Electrical installations were generally deficient in practical areas and have been or are being corrected. A good number of machines arrived with broken or missing parts which have not been repaired/replaced. Spare lamps (for projectors, for example) appear to present difficulties. Finally, operating and maintenance manuals, where they exist, are in English instead of Spanish. 1/ 3.20 Distribution of Furniture and Equipment. 2/ Most school principals interviewed indicated that inventories of furniture and equipment were never provided, so that they were unaware of what had been allocated to each school and were not prepared to examine the delivered equipment and furniture. There were instances, too, of maldistribution, with schools either receiving items which were unneeded, or failing to receive equipment which clearly formed part of their facilities and teaching programs. This is one specific area in which the services of a Project Unit Educator, giving proper assistance to the procurement officer and doing timely supervision, would have forestalled such procurement and other anomalies. Technical Assistance 3.21 The following table compares the technical assistance originally estimated to be provided from the proceeds of the Loan/Credit (Schedule lB of the Loan Agreement) with what was actually used: Field/Organization Specialists (m/y) Fellowships (m/y) Provided Used Provided Used Ministry of Education Central Organization/Administration 2 2 - Primary Teacher Training 6 4 6 - a/ Ministry of Natural Resources 6 6 10 9 INFOP 8.5 8.5 30 n.a. b/ Project Management 1 - - 23.5 20.5 46 9 a/ b/ a/ A large group of teacher trainers participated in a seminar held in Panama City for a short period. b/ 27 fellowships of varying length were utilized. 1/ A consultant assisted the MOE during the initial stages of operation of project schools and provided material assistance in the resolution of these problems. 2/ Comments from the Government amplifying this part of the report are included in pages 1-5. - 27 - 3.22 Notwithstanding lengthy delays in contracting specialist services and in processing fellowship programs, results were highly satisfactory. 1/ There is wide consensus among the concerned institutions that the level of competence of, and the results achieved by the specialists were gratifying and had a positive impact on the attainment of project objectives. Most benefi- ciaries have returned to project institutions with significant improvements in their performance. 3.23 There were two unsatisfactory elements in the technical assistance program: (a) the Project Unit's inflexibility in deciding (contrary to Bank recommendations) to discontinue using the technical assistance services provided by CONESCAL. This decision resulted from an error by one CONESCAL staff member who prepared architectural briefs which deviated significantly from appraisal specifications; and (b) the failure of the Ministry of Education, despite repeated prompting by the Bank Group, to utilize all but a small part of the 6 man/years of fellowships. 2/ The first candidates selected by MOE were regarded by the Bank/IDA as unsuitable, after which no further proposals were received from the MOE. Covenants 3.24 Loan Agreement covenants which have been less than fully complied with are: (a) Section 4.04(a) refers to the effective operation of the project institutions, and establishes that the Borrower will operate the project institutions under conditions that will promote the edu- cational objectives of the project. However, conditions in primary teacher training schools have suffered from the acute accommodation problems resulting in class sizes up to 50-60 students and shortage of consumable materials. (b) Section 4.04(b). Buildings, equipment and furniture have not always been adequately maintained, nor necessary repairs and renewals made. (c) Section 4.05(d). Tracer systems in the formal education sector have not been developed and in INFOP are only at incipient stages. (d) Section 4.05(e)(i). Short supplementary training courses for graduates of the technical schools have not yet been formally established, though INFOP intends to develop such a course in the future. The detailed status of compliance with covenants is shown in Annex 2. 1/ Delays were due to insufficient planning during preparation/appraisal which was reflected in optimistic scheduling. This was aggravated by the organizational problems discussed in para. 3.03. 2/ See Note a/, page 14. - 28 - Bank Performance 3.25 During the six years from March 1974 through February 1980 the Bank Group mounted 18 supervision missions for a total of 21.1 man/weeks (on the average 3.5 man/weeks each year). Supervision by architectural staff absorbed 52.5% of field work; the remaining 48% was provided by general educators (34.5%); agricultural educators (11.8%); and technical educators (2.3%). The input of agricultural and technical educators seems insufficient, especially in the context of (a) the lack of a Project Unit Educator and the limited supervision exercised by the relevant liaison officers (para. 3.03); and (b) a project which included 25 institutions in 5 different sub-sectors. In this latter respect, it is to be observed that while 47% of base project costs were absorbed in technical and agricultural education, only 14.1% of supervision time was devoted to these aspects; in the case of technical education a single mission of 5 days was mounted throughout the six-year period, while for the agricultural components only two missions of 3 and 9 days, respectively, at an interval of 3 years, were fielded. In addition, the lack of continuity in mission composition was a marked feature of project supervision; while the same general educator was used throughout, four different architects and two agricultural educators serviced this project (Annex 3). However, even if the composition of Bank/IDA missions had had more continuity and had included a more reasonable proportion of vocational and agricultural educators, it is questionable whether their inputs might have been the right answer to implemen- tation problems. More advanced project preparation before Board presentation (e.g. early site selection, preparation of furniture and equipment lists and completion of designs), with adequate attention to the establishment of a stronger implementation unit, would have improved project implementation. 3.26 The second characteristic of the Bank Group's performance was the frequency and duration of supervision missions specifically in regard to the educational aspects. The general educator's 36 days of supervision were distributed over 4 years (17 days in 1974, 8.5 in 1976 and 10.5 in 1978); educators were in the field for the most part for missions of 5 days or less, making visits to project institutions outside Tegucigalpa extremely difficult. The Bank Group had therefore to rely heavily on information reported by the Project Unit, including Quarterly Progress Reports which were devoid of information on educational aspects. These factors limited Bank/IDA effective- ness in monitoring properly the attainment of the educational objectives. - 29 - IV. PROJECT COST AND FINANCES Capital Cost 4.01 The total cost of the project reached US$10.35 million, a 20% increase over Appraisal Report estimates (US$8.6 million), which lowered the Bank/IDA financing from 69% to 58% of total cost. The principal causes of cost overruns were increases in construction (33%) and equipment (35.4%) expenditures, notwithstanding savings in other items (i.e. furniture). (a) Construction Costs. Only MOE construction costs remained stable, within 2% of the initial estimate. In respect of Ministry of Natural Resources project items, ENA adaptation cost was underes- timated in the initial preparation and appraisal documents; speci- fications for the rural training centers were higher than originally anticipated. As regards INFOP project items, INFOP decided to construct installations beyond the size of those stipulated in the Loan Agreement. Since the expansion of the physical plant and exterior works was considerable, the percentage of reimbursement was reduced in order to distribute the proceeds of the loan/credit evenly during construction (para. 4.04). (b) Equipment Costs. During the initial stage of project implemen- tation, procurement of equipment followed cost estimates of the Appraisal Report; however, during the appraisal of the Second Education Project, the Borrower and the Bank/Association agreed on the procurement of additional equipment and allocated unused funds from other categories of the project under review, mainly from: (a) furniture, which required only 68% of funds estimated in appraisal report; and (b) fellowships, not utilized. Increases of equipment costs were also caused by additional equipment for the ENA, which the government, with Bank Group approval, decided to transform into a post-secondary school during the appraisal of the second project; the second project does not provide additional equipment for the ENA. (c) Other cost variations were: (i) The professional services of consultant architects cost an average of 18.3% above the initial estimate, including contingencies. The cost of building design and supervision, which were undertaken by MOE with its staff, resulted in considerable savings, which offset some of the excess costs incurred in the fees of the consultant firms contracted by the Ministry of Natural Resources and INFOP; (ii) The actual expendi- tures for furniture was 32% lower than the initial estimate, including contingencies. The cost savings reflect a generous estimation at appraisal, but also account for the poor quality of the furniture; (iii) In the technical assistance programs, the Borrower did not contract all the specialists included in project appraisal and, as a result, the cost was 29% below the estimate, including contingencies. The Ministry of Natural Resources and - 30 - INFOP did not implement part of the fellowship programs; MOP used a small portion of the funds allocated to technical assis- tance and the Project Unit used only a small portion of funds for specialist services (para. 3.23). 4.02 Estimated and actual costs are shown in Annex 4 and summarized in the following table: Appraisal Actual Category of Estimate Costs Difference Expenditure TSS'000 US$'COO US$'000 % Civil Works 4,999 6,652 +1,653 + 33.0 Professional Services 393 465 + 72 + 18.3 Furniture 601 408 - 193 - 32.0 Equipment 1,552 2,102 + 550 + 35.4 Technical Assistance - Specialists 799 566 - 233 - 29.1 - Fellowships 318 165 - 153 - 48.1 Total 8,662 10,358 +1,696 + 19.5 Unit Space Allocation per Student 4.03 Gross areas per student place 1/ (or housing unit) are approxi- mately as follows: Gross Unit Areas in Sq. M. Academic & Communal Boarding Staff Housing Type of Institution App. Actual Diff. App. Act. Diff. App. Actual Diff. Primary Teacher Training 2/ 8.24 8.73 + 6 7.19 6.75 - 6 50 54 + 8 Primary Application Schools 3.00 2.90 - 3 8.0 9.0 +!12 50 54 + 8 Secondary Teacher Training 3.78 3.85 + 2 - - - - - - Secondary Application Schools 6.57 7 07 +7 - - - - - - Vocational Training 14.95 16.74 +12 - - - - - - Nonformal rural Training 9.10 10.80 +18 8.06 9.2 +14 64 59 - 8 Average 7.60 8.34 + 9.7 7.75 8.31 + 7 54.66 55.66 + 3 1/ Refers to capacity, not actual enrollment. 2/ New school with boarding and staff-housing facilities located in La Esperanza, Intibuca. - 31 - On average the increase in the unit space was within the limit of physical contingencies (10% of the base cost estimates). Increases in total construc- tion area of the primary teacher training school, the vocational training centers and the application secondary school are mainly due to the provision of covered walkways. Academic facilities in nonformal rural training centers increased due to larger administration areas, which included storage space and some additional covered paths. Increase in unit areas of boarding facil- ities for primary application schools and nonformal rural training was agreed between the Borrower and the Bank, taking into account that accommodations are for adults, who in some instances may be graduates or supervisory staff. Differences in staff housing are not significant. Available data on capital costs per student are too aggregated to permit meaningful interpretation. Project Operating Costs 4.04 The mission was unable in most instances to obtain consistent data on operating costs. In the case of the primary teacher training schools, the situation is complicated by the existence or not of boarding facilities and a student mix of state-financed boarders, fee-paying interns and external students some of whom are provided with transport and/or a midday meal often subsidized from other revenue sources. However, tentative figures for 1978 show the following wide variation in unit operating costs: Unit Cost School Enrollment Budget (Lps) Lps USS Tegucigalpa 1,885 881,556 468 234 Danli 771 618,552 802 401 La Fsperanza 595 560,340 941 470.5 Comayagua 428 563,448 1,316 658 4.05 The inverse ratio between enrollments and unit costs should be interpreted with caution; the Tegucigalpa school has no boarding facili- ties, but many oversized classes; La Esperanza, which boards its students in the nearby town, has as yet not exploited to any degree its farm area either as a revenue source or to assist with meals costs; Comayagua, with the lowest enrollments, provides full boarding services for all but 2% as compared with Danli's 44% externs. Common features appear to be (i) sal- aries account for at least 90% of expenditures; but nevertheless (ii) some resources are devoted to the provision of teaching materials, student wel- fare and equipment maintenance. 4.06 In typical instances government scholarships for residential students are worth Lps. 60 per month; other interns pay Lps. 100 per month; externs are provided with meals for as little as Lps. 0.50 each; all students are required to meet the costs of uniform, an annual enrollment fee of Lps. 10 and examination fees of about Lps. 12 per year. 4.07 Neither INFOP nor the Ministry of Natural Resources had disag- gregated costs for the project institutions, much less for hourly costs of the diverse training programs. As regards INFOP all that can be said is - 32 - (a) that the total budget for 1979 amounted to Lps. 10 million of which about 80% was expended on industrial, as distinct from agricultural train- ing; (b) that initial excessively high training costs are being contained by cost control mechanisms; and (c) the payroll base which finances INFOP opera- tions appears to provide adequate revenues. With respect to the Ministry of Natural Resources, unit costs at the secondary agricultural school (residen- tial), which now constitutes a component of the second education project, are estimated at a high Lps. 5,000 per annum, possibly the results of high teachers' salaries, the academic level of the institution and a small, wholly residential complex. The total requested operational budget for the Ministry of Natural Resources Agricultural Training Centers amounted in 1980 to Lps. 4.8 million. Disbursements 4.08 Due to delays in civil works implementation and particularly procure- ment of equipment, disbursement of loan/credit funds spanned a seven-year period instead of the appraisal estimate of four years. During the first 18 months of project implementation, disbursement followed the initial estimates closely. In December 1975 it was 101% of the appraisal report estimate, thereon it slowed down, reaching 65% of the appraisal estimate for the original Closing Date (June 30, 1978). Disbursement of the remaining 35% during the three-year overrun period continued at the same slow pace. 4.09 Estimated and actual disbursements are shown in Annexes 1 and 5, and summarized in the following table: Initial Actual % of Category Allocation Disbursement Loan/Credit (US$) (US$) Furniture and Equipment 1,700,000 2,566,806 43 Civil Works 2,170,000 2,752,834 46 Technical Assistance 653,000 569,380 9 Fellowships 270,000 110,980 2 Unallocated 1,230,000 -- -- TOTAL 6,000,000 6,000,000 100% V. PROJECT OPERATING OUTCOMES Attainment of Project Objectives 5.01 It will prove instructive to analyze, insofar as data are available at present, the extent to which objectives have been met separately for each of the five sub-sectors that constitute project content: primary education; secondary education; formal secondary agricultural education; non-formal vocational training; and non-formal agricultural training. - 33 - Primary Education 5.02 Primary Teacher Training Schools. Project objectives included (a) the consolidation and rationalization of primary teacher training by concentrating 47 primary teacher training courses in four project-assisted institutions with a total enrollment of 2,000 students (about 865 residential) and an annual output of some 600 students; (b) the application and evaluation of a revised curriculum, multigrade teaching techniques and community develop- ment; and (c) improved and more relevant teaching practice procedures. 5.03 At first glance, the qualitative aspects of this component appear to have been largely met. Though the quality of school principals and therefore of school administration is uneven, the best institutions are soundly organized and all schools are staffed by well trained, experienced and mostly full-time staff. The new curriculum has been successfully intro- duced and is bearing fruit in the primary application schools; nonetheless further improvement could be effected by (a) revising timetable loadings to provide more subject continuity; and (b) reorganizing the teaching practice arrangements to provide cumulative experience throughout the course. Internal efficiency is promising (in part, perhaps because of the maturity of students, most of whom are overaged) with dropout declining after the first year where it varies from 4.7% to 10.4%, to an average of 3% and 1.8% in successive years; repetition, with one exception, averages less than 2%, and output reaches 98% of final year students (Annex 6). 5.04 These promising outcomes should, however, be read within the context of (a) the lack of a national standardized examination system, so that schools essentially set and score their own examinations; and (b) the modification at school level of the content of internally set examinations to accommodate changing conditions in the particular school. These conditions are by no means optimal and are the direct result of the lack of a firm government policy in respect of enrollment criteria. Under the pressure of popular demand, enrollments in the 4 project institutions have been allowed to rise to about 3,995 in 1980, almost double appraisal assumptions (Annex 6). This has resulted in (a) acute accommodation problems, with circulation, recreational and practical areas, and in one case newly constructed boarding accommodation being pressed into service as teaching spaces; (b) class sizes are often excessive, reaching 50-60+ students with a consequential deleterious effect on the quality of education, not least in respect of practical courses; (c) timetable adjustments to meet this situation; and (d) variations among the four schools in curriculum content and in the scope of internally set examina- tions. Moreover, while the concept of consolidating 47 primary teacher training courses into specially designated schools has been preserved, the unplanned expansion of the system, resulting from popular demand has led to other undesirable results. It is undeniable that the unrestrained growth of trained primary teachers has helped the government to expand primary school enrollments which increased at a faster rate than the appraisal esti- mates; nonetheless, suitable conditions for expanding the system should have been assured by the Government. Instead, three additional primary teacher training schools (not financed by the Bank/IDA) have been created, initially by private initiatives and now given official recognition; these are operating in totally inadequate premises where classroom accommodation fails to reach minimal standards, and practical shops and science laboratories are nonexistent, to the detriment of quality teacher preparation. Total output in the seven - 34 - primary teacher training schools has thus reached 1,800. The output during 1978-1979 exceeded the new teaching posts by 40%. This situation would be more acceptable were it not for the fact that (a) many students admitted to these expensive courses enroll as a way of getting admitted to universities without any commitment or desire to teach; and (b) the lack of government resources has prevented the creation of sufficient new teaching posts to absorb the output of the schools, even though under the pressure of popular demand the number of new teaching posts has been significantly increased. The mission discussed these issues with MOE but imminent government changes at that time preempted the formulation of new policy directives. 5.05 Primary Application Schools. These schools were designed to meet two objectives. First, educationally deprived rural communities would be provided with schooling opportunities, and with a focal point for community development actions. Second, the schools themselves, located within the catchment zones of the four project primary teacher training schools, would, under the guidance of the latter, utilize the new curriculum, with its emphasis on community development, and the multigrade teaching techniques taught to the trainee teachers who would use the schools for teaching practice. Residential accommodation provided at the application schools would permit extended practice periods by the trainee teachers. These objectives have been substan- tially met. The schools are suitably Located; enrollments are about 108% of appraisal projections although they are unevenly distributed between the twelve schools (Annex 7). This disparity in enrollments has led some schools either to divide large classrooms into two smaller teaching areas or to utilize residential accommodation for teaching purposes. In this connection future proposals to include residential accommodation in rural, and sometimes isolated schools, should be carefully reviewed; even married couples, and, much more, single women teachers, and young trainees, are often reluctant to court the risk of living in that kind of seclusion, so that much of the residential accommodation is not used for the purpose intended. That said, it should be added that the schools are operating very satisfactorily; the teachers interviewed are well trained, enthusiastic and dedicated, conversant with multigrade teaching techniques and fully involved in rural development projects, including the current national literacy campaign. The schools are generally quite well maintained, though mostly they lack an adequate supply of teaching/learning materials. Secondary Education 5.06 Secondary Teacher Training College. The qualitative objectives of this component have, to a large extent, been met. The college is adequately staffed with well qualified, mainly full-time teachers upgraded under the UNDP technical assistance and fellowship program; it is offering both the broader range of secondary teacher education courses, including industrial arts, home economics, commerce, and physical education, and also the training programs in primary school organization and administration envisaged during project appraisal. In quantitative respects, however, project objectives have been only partially achieved: total enrollments (1,158 in 1980) are only 70% of planned capacity, and output of secondary school graduates, which between 1974 and 1978 averaged about 180 annually, is only 51.4% of the 350 foreseen during appraisal (Annex 8). Moreover, the extension of the college workday from 10-13 hours and the operation of a three-, rather than two-shift system, - 35 - result in a wide dispersion of the student body, and a high incidence of underutilization of facilities (a sample check of the timetable revealed use factors varying from 50-70%). Other matters to which the government should give attention are: (a) enrollment imbalances: projected secondary educa- tion courses are 42.6% undersubscribed, while planned courses in educational organization and administration are 43.1% oversubscribed; and (b) the means to attract more existing, untrained secondary teachers into its training courses; at present 45% of the school's enrollment are practicing (mainly primary school) teachers (Annex 8 gives further information). Such deviations from project objectives stem basically from the limited intervention of the Ministry of Education in the operation of the project schools (para 3.05). Finally, while no systematic follow-up studies have been made, the mission understands that many of the graduates, whose level of training and of acceptability appear to be high, find employment in the lower, rather than upper cycle of secondary education. This being the case it is a question whether the college's sophisticated workshops and equipment and thus the costs of advanced technical teacher education, are justifiable. 5.07 Secondary Application School. Implementation of the project objectives of this school has suffered a series of setbacks not directly attributable to the institution. In quantitative terms enrollments over the past three years (Annex 9) have fluctuated between 358 and 424, at the maximum barely 50% of the planned capacity, in two shifts, of 840. Among the reasons contributing to this situation are said to be (a) budgetary deficiencies for teacher salaries; and (b) the policy of the government/ Secondary Teacher Training College (the latter controls administratively the Application School) of admitting to the upper cycle courses only their own graduates from the lower cycle, a policy which diverges from the Appraisal Report assumptions that the school would serve a catchment area with a popula- tion of 10,000 inhabitants. In organizational terms the school operates a two-shift system (7:00 a.m. to 2:00 p.m. and 6:00 p.m. to 10:00 p.m.) so that the premises are unused throughout the afternoon. Because of the limited number of upper cycle students, all of whom are at work during the day, upper cycle courses are held only at night. The morning shift, which currently offers only the lower cycle course, exemplifies the underutilization of facilities, the present enrollment of 151 representing about 36% of intended capacity. Here again the Ministry of Education, with its policy of non- intervention, took no steps to apply corrective action. 5.08 There are unresolved problems pertaining to the quality of education. Dropout rates (1979) for the lower cycle of 16% and 38% for the morning and evening shifts, respectively, and of 30% for the diversified cycle seem high for this type of institution. One can speculate on the extent to which retention is adversely affected by a teaching force which is largely part-time (72% of the staff in 1980 were teaching 15 periods or less per week--50% less than 10 periods per week); by oversized teaching groups (up to 58 students in the lower cycle day shift) which exact their toll in regard to quality education, and by a shortage of science equipment which affords little opportunity for practical courses. 1/ 1/ A reasonable quantity of equipment was procured for the Application School; however, it has been retained by the Secondary Teacher Training College. - 36 - 5.09 Finally, to achieve the quantitative and qualitative targets planned for this institution, a series of actions will need to be taken by the govern- ment and the parent Secondary Teacher Training College. The allocation of sufficient full-time teachers, and a return to the broader catchment area envisaged for the institution are steps which fall within the purview of the Ministry of Education. The restoration to the Application School of physical facilities (workshops and specialist rooms) which have been taken over by the Secondary Teacher Training College, and the distribution of equipment assigned to the School but presently held by the Teacher Training College are measures which the latter institution should initiate. Lastly, the reorganization of the school day so as to maximize the use of existing facilities, and a review of the timetable content, specifically in respect of upper secondary academic and commercial courses, would benefit from improved balance, better subject distribution, and a loss of vocational orientation (Annexes 10 and 11). In general, the Ministry of Education should seek to improve the relationships with, and supervisory functions over these two institutions, a matter broached by the mission and which should be further explored. Agricultural Education and Training 5.10 Agricultural Secondary School. The planned development program for this school has been implemented. The technical assistance and the fellowship program were well used to update and consolidate the school's curriculum and for staff development. Student selection procedures were introduced and school organization and administration have been improved. By 1977 the planned phasing out of students following the earlier, unsuitable curriculum had taken place and ENA stood poised to admit in 1978 its first intake under the new teaching program. By then, however, agreement had been reached with the Association, under the Second Education Project (Credit 777-HO) to upgrade the school to post-secondary level (the previously approved timetable was acceptable for this purpose) and under this new arrangement the first students were admitted in 1978. Despite all the above precautions early operational results have been mixed but appear to be improving. Present enrollments in the three years represent a dropout of almost 32% while the graduating class of 1980 is only 56% of the initial intake. Were the present situation to continue, output, at about 57 per year, would fall short by about 20% of the appraisal target (Annex 12). The mission was unable to evaluate the reasons for this shortfall, or to assess the qualitative aspects of the new courses. 5.11 Non-Formal Agricultural Training Centers. The three project agricul- tural training centers were substantially in operation from 1978, though problems of equipment and furniture procurement and of water and electricity services were not resolved until the end of that year. Initially, planned activities appear to have lacked central coordination so that there were marked differences between the centers in the emphasis placed on development aspects other than crop cultivation techniques (Annex 12). By 1979, however, a common approach appears to have been developed and all centers were planning courses, as foreseen in the appraisal report, in home management, youth training for rural development, and basic education, as well as in crop cultivation techniques, marketing and cooperatives. Appraisal report assump- tions as to the practical length of residential courses probably paid insuffi- cient attention to the problems of relatively long absences from the home or farm of agricultural workers and their wives; in the event most courses have - 37 - been of shorter duration than anticipated (2-3 days). For the same reasons, training groups are frequently smaller than envisaged, and the residential accommodation is not always fully used. Conversely the shorter duration of training periods probably accounts for the large number of participants (4,465 in 1978, and 6,134 in 1979, 223% and 307%, respectively, of appraisal estimates). However, the real number of trainees is probably considerably lower if account is taken of duplication of enrollments in multiphase courses. In some centers the appointment and retention of Directors of Training have proved difficult, but the situation is now more stable and the centers are adequately staffed. Cooperation, more informal than institutionalized, is developing with other extension agencies including the local field stations developed under an IDB project. It is perhaps to this aspect of macro-planning that the government now needs to turn its attention. Currently some twelve agencies are active in rural development projects with inevitable overlap and duplication of services. The mission was given to understand that an agreement, to be signed by all the involved agencies, to set up coordinating machinery, is presently being studied. Vocational Training 5.12 Vocational Training Centers. The basic objective of the two vocational training centers was to complement the skill training program of the National Institute of Vocational Training (Instituto Nacional de Formacion Profesional--INFOP) with special reference to the industrial sector. The Miraflores Center in Tegucigalpa would offer courses at apprenticeship (2-year duration), basic skill (6-month duration) and skill upgrading (60-hour modules) levels, as well as in-plant training, all in a wide variety of industrial skills. The San Pedro Sula Center would undertake a similar program except that apprenticeship courses would be given by a nearby Technical Center. Additionally, to promote the in-plant training component, an Industrial Training Development Center, to be included in the Tegucigalpa construction program, would identify training needs, plan and implement the programs on the basis of trade profiles, institute certification techniques and estab- lish a placement service, and follow-up and evaluation procedures. 5.13 Anticipated output by type of training and by institution was expected to be as follows: Basic Skill Skill In-Plant Institution Apprenticeship Training Upgrading Training Miraflores 60 450 3,240 1,000 San Pedro Sula -- 720 3,960 1,000 5.14 While time constraints and the lack of a technical/vocational educa- tion specialist on the mission made difficult a detailed analysis of results achieved, the following overview of the current situation at the two centers is tentatively offered: (a) Apprenticeship Courses: (i) Changes in training procedures: Given the deficient background and experience of entrants to these courses, and to meet the traditions of industrial - 38 - training in Honduras, the courses have been extended from two to two-and--one-half years, including an initial foundation course of 4-6 months, and the sandwich course concept has been discontinued in favor of a work experience element on completion of the full-time training course. In this latter regard the mission has previously noted in at least one other Central American country that the essentially alien concept of the sandwich course has eventually been rejected by industry, and recommends that in future projects full consultation and agreement with governments and local industry be sought prior to the planning of this type of course structure; (ii) Training Programs: Apprenticeship courses are now being offered at both centers, plans for the integration of the San Pedro Sula Center with the local Honduras/German Technical Center having failed to materialize; the four areas of apprentice training provided for in the working papers have been extended to six, and now include carpentry and refrigeration, originally to be offered only at skill training level. (iii) Enrollments and Output: Foundation courses in only three training areas were initiated in 1977, enrollments in each (16) being close to the planned intake. The first output, scheduled for 1980, is expected to produce 40 graduates instead of the anticipated 60. Thereafter numbers may be expected to exceed appraisal estimates, especially since the San Pedro Sula Center is also offering these same courses. Job placement is believed to present no difficulties. (b) Skill Upgrading Courses. Enrollments in these courses (1,572 and 982, respectively, for the two centers) are vastly below the 3,240 and 3,960 anticipated at appraisal. However, the mission understands that logistically this type of training is mainly given in local centers (most of the 18,286 participants in 1979 were trained by INFOP's mobile centers' staff); it was unable to assess the possible effect of this policy on the use factor of facilities provided under the Loan/Credit, a matter which should be followed up by a technical educator. Otherwise the courses, given mainly to male workers, appear to have covered a wide range of occupational skills successfully. (c) Basic Skill Training. The remarks made above in respect of skill upgrading courses are equally valid for this level of training. In 1979, the two centers trained only 158 and 226 workers as compared with the planned 450 and 720, respectively, although in all INFOP trained 1,714 in basic skills. (d) In-Plant Training. While the mission was unable to obtain disaggregated figures for the two project centers, it learned that in 1979 INFOP resources provided training for some 5,084 workers in 30-hour courses. This is substantially more than the 2,000 envisaged at appraisal for the project component. As regards the training of 360 supervisory staff annually at the Miraflores Cener, incomplete data show that within the industrial sector INFOP trained, but not necessarily at this institution, 526 personnel in 1979. Further details on the training programs executed in 1979, and programmed for 1980, can be found in Annex 13. - 39 - 5.15 Industrial Training Development Center. The institutional objectives enumerated above (para. 5.12) have been generally met; ongoing contacts with industry provide short- and long-term training requirements on which the operational plan is based; occupational analyses studies have produced job profiles in about 27 occupations in five employment categories, and are being extended; training course content has been based on these studies and, for other occupations, on the outcome of discussions with industry; the trade testing and certification elements are at a very initial stage and need to be pursued. So far as a placement service is concerned, no specific office deals with the employment of INFOP graduates. However, INFOP is represented on the Ministry of Labor's Office of Labor Statistics and on the Directorate-General for Employment both of which provide general placement services, while INFOP itself uses its local contacts with industry to identify job vacancies for its graduates. A beginning has also been made in follow-up studies, mainly on the basis of interviews and discussions with INFOP graduates and their employers; course content adjustments have resulted therefrom and the techniques employed are being further refined. The Industrial Training Development Center seems to be justifying its raison d'etre; it now needs to accelerate its efforts to develop fully and institutionalize the services for which it was created. s s HONDURAS - LOAN 954/CREDIT 452-HO PROJECT IMPLEMENTATION SCHEDULE APPRAISAL ESTIMATE VS. ACTUAL OUTCOME IlIilllII l Ill June December June December June December June December June December June December June 1974 1974 1975 1975 1976 1976 1977 1977 1978 1978 1979 1979 1980 MINISTRY OF EDUCATION, DESIGN AND CONSTRUCTION - 6m OLA ESPERANZA PRIMARY TEACHER TRAINING SCHOOL I OCOMAYAGUA e PRIMARY TEACHER TRAINING SCHOOL ODANLI PRIMARY TEACHER TRAINING SCHOOL *TEGUCIGALPA . . . . . PRIMARY TEACHER TRAINING SCHOOL L,,, APPLICATION PRIMARY SCHOOLS -4m (NUMBER. 12) - I - fTEGUCIGALPA SECONDARY TEACHER TRIANING COLLEGE @TEGUCIGALPA APPLICATION SECONDARY SCHOOL FURNITURE -3m EQUIPMENT MINISTRY OF NATURAL RESOURCES, DESIGN AND CONSTRICTION *NATIONAL SCHOOL OF AGRICULTURE *AGRICULTURAL TRAINING CENTERS (NUMBER 3) FURNITURE AND EOUIPMENT IN FOP DESIGN AND CONSTRUCTION &TEGUCIGALPA VOCATIONAL TRAINING CENTER -im &SAN PEDRO SULA VOCATIONAL TRAINING CENTER WTEGUCIGALPA INDUSTRIAL TRAINING DEVELOPMENT CENTER FURNITLRF AND FOUIPMENT - - Appraised for Desiqn ORIGINAL CLOSING DATE ACTUAL CLOSING DATE Actual Design - - Appraised ConsTruction/Procurement iiii,iiiiiiiiiii,Actual Construction/Procurement a World Bunk - 22226 HONDURAS - Loan 954/Credit 452-HO Compliance with Loan/Credit Covenants Target Date Brief Description Loan Agreement Fulfilment (Ref. No.) 6/30/78 Closing date June 30, 1978 2.04 Closing date extended 24 months to June 30, 1980 Carry out Parts under Ministries of Education 3.01(a) All parts under these Ministries and Natural Resources and cause completed except for portions of technical assistance and fellow- ships. Cause INFOP to carry out vocational training 3.01(a) Due to expanded program actual components premises exceed those considered with Appraisal Report. Make contractual arrangements with INFOP 3.01(b) Arrangements completed satis- re. financing, carrying out and operation factorily (7/4/74) vocational training components Operate the Project Unit staffed by 3.01(c) All appointed - 1/30/74 - Project Director, Project Architect or Director and Engineer and Project Engineer, Project Procurement Officer Unit. There was a 10 month and Project Accountant period without Procurement Offi- cer. 7/8. 74 Appoint Project Procurement Officer 3.01(d) Proposed 8/29/74 (IBRD "no and Project Accountant objection" 9/17/74) 78 '74 Ministries of Education, Natural 3.01(e) Appointed 3/22/74 Resources and INFOP each appoint a Liaison Officer Employ curriculum, planning & management 3.02(a)(i) Fulfilled specialists Assign, for training with specialists, 3.02(a)(ii) Fulfilled counterpart personnel as required For parts A, B, & C, assign on full-time 3.02(b)(i) Fulfilled 0 basis, the architects and engineers of Ministry of Education For parts E & F employ, and for D cause 3.02(b)(ii) Fulfilled INFOP to employ, architectural consultants Employ contractors 3.03 Fulfilled Furnish to Bank, plans, specifications, 3.05(a) Fulfilled contract documents and construction & procurement schedule and any modifications Maintain records to record progress and 3.05(b)(i) Fulfilled identify goods and services financed by Project Allow Bank representatives to inspect 3.05(b)(ii) Fulfilled Project, goods financed.with Loan proceeds, relevant records and documents Furnish all information -s the hank sh2ll 3.05(b)(iii) Fulfilled reasonaily request re4ardinP Proiect. Acquire sites for construction and 3.06 Fulfilled, but acquisition of operation of Project facilities one site delayed 28 months. Maintain adequate records re. operations, 4.02(a) Fulfilled resources & expenditures Cause INFOP to maintain adequate records 4.02(b) Fulfilled of its operations and financial conditions Operate project institutions under con- 4.04(a) Acute accommodation oroblems ditions that will promote educational in Primary Teacher Training objectives of Project and make specific Schools due to excessive enroll- annual budget allocations for each ment. institution necessary for operation. Insufficient budget allocations for overcrowded P.T.T.S. resulting in class sizes of up to 50-60 students and shortage of consum- able materials. Maintain buildings, equipment & furniture 4.04(b) Minimal allocation of funds for of Project institutions maintenance in Ministries of Education & Natural Resources which hinder any attempt at systematic maintenance procedures. Within 2nd yr. Review & send to Bank (i) enrollment plans 4.05(a) Information was not sent & every year and targets at primary & secondary levels regularly to IBRD/IDA, but thereafter (ii) number new trainees in primary & was reviewed in the field secondary teacher training programs by supervision missions. o By 12/31/74 Begin in-service training of staff in 4.05(b) In-service training delayed. schools in Part A of Project Start 12/31/74 Establish "Consejo Directivo de la 4.05(c) Council established but end at coWr Escuela Nacional de Agricultura converted into Advisory Board tion of expan- reorganize school in Part E due to upgrading of ENA to sion of school post Secondary Level. Establish tracer system to obtain 4.05(d) Tracer systems have not been data on further education and developed in the formal employment of those attending Project educaton sector, and are only institutions at incipient stages in INFOP. Cause INFOP to: 4.05(e) with Ministry of Education conduct (i) Courses for technical school short-supplementary training for graduates not formally technical school graduates to prepare established them for employment Establish training curricula based on (ii) Worker profiles prepared for occupational analyses. 27 occupations in five employment categories Ensure curricula flexibility through (iii) Fulfilled use of short, self-contained training modules Collaborate with Borrower in use of (iv) No specific office deals with placement service for trainees the employment of INFOP graduates Establish permanent follow-up system (v) Not yet established for trainees 0 ANNEX 3 HONDURAS - Loan 954/Credit 452-HO Incidence of Bank Group Supervision Missions by Staff Specialty Specialty of Mission Man/Weeks Member(s) Year 1974 1975 1976 1977 1978 1979 1980 Total 1. Education General 3.4 - 1.8 - 2.1 - - 7.3 Tech. - - 0.5 - - - 0.5 Agric. I - - 0.7 - - - - 0.7 Agric. II - - 1.8 - 1.8 2. Architecture Subtotal 10.3 (48.8%) Arch I 2.8 - - - - - - 2.8 Arch II - 1.9 - 0.7 2.3 - 0.1 5.0 Arch III - - - 0.5 - - - 0.5 Arch IV - - - - - 2.5 - 2.5 Subtotal 10.8 (51.2%) TOTALS 6.2 1.9 2.5 1.7 4.4 4.3 0.1 21.1 a/ Agriculture I and II, and Architect I-IV refer to Bank staff assigned to supervision missions. HONDURAS - Loan 954/Credit 452-110 Estimated- and Actual Project Costs (in Lempiras) CIVIL WORKS PROFESSIONAL SERVICES FURNITURE EQUIPMENT T.A, SPECIALISTS T.A. FELLOWSHIPS TOTAL Appraisal Actual Appraisal Actual Appraisal Actual Appraisal Actual Appraisal Actual Appraisal Actual Appraisal Actual MINISTRY OF EDUCATION 6,645,192 6,513,193 527,433 405,075 821,000 524,341 1,297,650 1,709,578 552,000 216,999 82,800 - 9,926,175 9,369,186 Difference (%) -2% -23% -36% +31% -61% - -6% MINISTRY OF NATURAL RESOURCES 1,523,964 1,909,436 116,848 266,130 154,875 121,531 553,450 1,219,120 414,000 359,348 138,000 118,726 2,901,137 4,004,291 Difference (%) +25% +129% -21% +120% -14% -15% +38% I.N.F.O.P. 1,830,69C 4,881,889 140,419 259,090 226,625 170,039 1,203,100 1,234,106 586,500 542,964 414,000 212,000 4,401,334 7,300,008 & Difference (%) +166% +85% -25% +2% -7% -49% +66% PROJECT UNIT 50,000 42,000 46,000 11,163 96,000 53,163 Difference (%) -16% -75% -45% TOTAL (LEMPIRAS) 9,999,846 13,304,519 784,700 930,295 1,202,500 815,911 3,104,200 4,204,804 1,598,500 1,130,474 634,800 330,726 17,324,546 20,726,728 TOTAL (US$) 4,999,923 6,652,259 392,350 465,147 601,250 407,955 1,552,10') 2,102,402 799,250 565,237 317,400 165,363 8,662,273 10,363,364 Difference (%) +33% +19% -32% +35% -30% -48% +19% - 47 - ANNEX 5 HONDURAS - Loan 954/Credit 452-HO Actual and Estimated Disbursements by Year (US$ '000) Actual Total Appraisal Actual as percentage Disbursement Estimate of estimated 1974 June - 20 - December 27 80 34% 1975 March 52 190 27% June 175 300 58% September 425 450 94% December 705 700 101% 1976 March 869 1,120 78% June 1,096 1,570 70% September 1,254 2,040 61% December 1,370 2,560 53% 1977 March 1,802 3,260 55% June 2,156 3,960 54% September 2,407 4,830 50% December 2,723 5,470 49% 1978 March 3,126 5,900 53% June 3,891 6,000 65% September 3,985 66% December 4,350 72% 1979 March 4,614 77% June 4,780 79% September 5,117 85% December 5,234 87% 1980 March 5,361 89% June 5,514 92% September 5,569 92% ANNEX 6 - 48- Page 1 of 4 HONDURAS - Loan 954/Credit 452-HO Profile of the Primary Teacher Training Schools 1979-1980 1/ 1. Staff: a) by Qualifications School Staff PEM Equivalent Tech. MEP Total DanlI 20 1 1 13 35 Comayagna 18 3 4 - 25 Tegucigalpa 53 4 4 12 73 La Esperanza 10 - - 23 33 Non-Project 17 - - 4 21 118 8 9 52 187 (63.1%) (4.3%) (4.8%) (27.8%) (100%) 1/ PEM: Trained secondary school teacher Equivalent: graduate trained, psychologist, sociologist, etc. Technical: diploma in practical subject(s) MEP: Trained primary school teacher (mostly with further university-level Studies) b) by Years of Service (sample survey) 2. Students a) Ages Grades School 1 2 3 range average range average range average Danl! 14-25 n/a 15-26 n/a 16-26 n/a Comayagua 15-30 22 15-30 22 18-40 29 Tegucigalpa 15-25 18 16-26 19 17-27 20 La Esperanza 14-30 22 16-32 24 17-29 23 ANNEX 6 -49 - Page 2 of 1 b) Student Grants No. of boarding students by grade: 1. in receipt of grant 2. without grant School Grades 1 2 3 TOT 1 2 3 TOT Danl! 90 78 70 238 21 66 88 175 Comayagua 119 71 80 270 82 67 77 226 1/ Tegucigalpa- 37 56 107 200 - - - - La Esperanza 25 22 11 58 - - - - Non-Project School 5 13 17 35 - - - - 276 240 285 801 103 133 165 401 c) Dropout2/ School Grades 1 2 3 Danl! 29(9.5%) 6(2.1%) 2(0.9%) Comayagua 8(5.2%) 1(0.7%) Tegucigalpa 29(4.7%) 12(1.6%) 2(0.4%) La Esperanza 29(10.4%) 6(3.1%) 2(1.4%) 3/ Non-Project School 16(7.0%) 23(10.8%) 10(5.3%) d) Repetition School Grades 1 2 3 DanlT 7(2.3%) 2(0.7%) 3(1.4%) Comayagua 3(1.5%) - Tegucigalpa 2(0.3%) 9(1.2%) 7(1.2%) La Esperanza 33(11.8%) 8(4.1%) 1(0.7%) 1/ Study grants. No boarding facilities at school. 2/ Includes relocation of families, expulsions for poor scholastic performance and/or misconduct. 3/ 1978-1980 cohort. ANNEX 6 - 50 - Page 3 of 4 e) Enrollments and Output compared with number of new teaching posts created 1978-1980 Enrollments Year Total Output New Teaching Posts Appraisal Actual Appraisal Actual Appraisal Actual 1978 2,000 4,333 600 1,360 600 700 (+200)3/ 1979 2,000 4,575 600 1,440 600 1,300 1980 2,000 4,752-/ 600 1,490 600 80 (+?) 1 For 4 project and 1 non-project school. 2 other non-project schools not included. 2 Estimated 98% of 3rd Year enrollment. 3.' Figure in brackets represents additions to original quota of new posts. In 1980 the students petitioned the Government to increase the number of new posts by 900. 4/ A more detailed breakdown of enrollments in 1980 appears on Page 4. If) Enrollments by grade and sex, 1980 GRADES SCHOOL 1 2 3 TOTALS M F TOT M F TOT M F TOT M F TOT Danl' - 327 327 - 290 290 - 265 265 - 880 880 Comayagua 164 - 164 196 - 196 145 - 145 505 - 505 Tegucigalpa 99 614 713 71 482 553 138 633 771 803 1729 2037 La Esperanza 94 145 239 61 91 152 64 118 182 219 354 573 I SUBTOTAL 357 1086 1443 328 863 1191 347 1014 1361 1032 2963 3995 Choluteca (Non-Project) 90 263 353 37 177 214 59 131 180 186 571 757 TOTAL (5 schools)* 447 1349 1796 365 1040 1405 406 1145 1551 1218 3534 4752 *Note: Two other non-project schools have an estimated total enrollment of about 1200 of whom approximately one third, 400, are in their third year of studies. This would give a total enrollment of about 5950, and an annual output of 1900 if 2% allowance for dropout/failure _ >4 in the final year is assumed. rW - 52- ANNEX T HONDURAS - Loan 954/Credit 452-HO Project Primary Application Schools Enrollments 1980 Group Associated Teacher Name of Primary Enrollments Appraisal Training School Application School M F Total Targets 1 EN de Occidente, El Carizal 25 23 48 80 La Esperanza Santa Catarina 45 41 86 80 El Tejar 54 49 103 80 124 113 237 240 2 EN Centroam9rica, Las Playitas 85 81 166 80 Comayagua El Coquito 36 27 63 80 San Nicol9s 45 49 94 80 166 157 323 240 3 EN Espaia, Quisgualagua 35 35 70 80 Danl' Pozo Bendito 25 26 51 80 El Robledal 32 30 62 80 92 91 183 240 4 EN Mixta, El Matazano 55 55 80 Tegucigalpa Sotero Baharona 113 113 80 3 de Octubre 123 123 80 1/ 1/ 291- 291- 240 TOTAL ENROLLMENTS 1,034 9601/ 1/ Breakdown by sex not available. - 53 - 53- ANNEX 8 HONDURAS - Loan 954/Credit 452-HO Page 1 of 2 Secondary Teacher Training College Enrollments 1980 A. Actual 1. By Sex and Year of StudyL. Appraisal Year of study M F Total Target 1 116 229 345 2 195 210 405 3 69 147 216 4 49 101 150 5 or more 11 31 42 440 718 1158 1600 2. By Type of Course a) Secondary Teacher Training Specialty M F Total % Social Sciences 75 109 184 22.9 Natural Sciences 37 72 109 13.6 Mathematics 57 74 131 16.3 Liberal Arts 18 40 58 7.2 Physical Education 24 23 47 5.9 Industrial Arts 47 6 53 6.6 Home Economics - 61 61 7.6 Commerce 42 118 160 19.9 300 503 803 100.0 (37.4%) (62.6%) b) Primary Education Courses Pre-School Education - 66 66 Primary School Directors 37 43 80 33 5 38 70 114 184 c) Other Courses Administration of Educa- tion 5 32 37 Student Guidance (Secondary) 11 63 74 Professional Courses for Technical Teachers 54 6 60 70 101 171 - 54 _ ANNEX 8 Page 2 of 2 Summary Distribution of Courses Type of Course Enrollment % Secondary Teacher Training 803 69.3 Primary Education Courses 184 15.9 Other Courses 171 L4.8 1158 100.0 B. Enrollment Pattern - Projected (Appraisal) and Actual (1980) 1. Secondary Teacher Training. Specialty Enrollment % Projected Actual + or - Social Sciences 160 184 +15% Natural Sciences 240 109 -55% Mathematics 240 131 -46% Liberal Arts 160 58 -64% Physical Education 120 47 -61% Industrial Arts 200 53 -73.5% Home Economics 120 61 -49.2% Commerce 160 160 - 1400 803 -42.6% 2. Education Administration. 1601/ 221/ +43.1% 3. Other Courses. Pre-school Education - 66 n/a Professional Courses for Technical Teachers - 60 n/a 2/ 1560- 1158 -26% (1650)- 1158 (-30%) I/ Includes courses for primary school directors, school supervisors, guidance counsellors, education administrators. 2/ Based on final enrollment, after dropout. Total projected enrollment, 1650. ANNEX 9 - 55 - Page 1 of 2 HONDURAS - Loan 954/Credit 452-HO Application Secondary School Enrollments 1978-1980 A. Morning Shift YEAR Grade 1978 1979 1980 Mf F M F M F 7 34 36 25 25 25 25 8 20 28 31 27 18 25 9 15 13 22 26 32 26 10 - - - - - - 11 - - - - - 12 - - - - - - 69 77 78 78 75 76 146 156 151 B. Evening Shift Grade 1978 1979 1980 M F M F M F 7 31 12 22 20 15 22 8 9 6 18 6 6 10 9 9 11 9 7 16 3 10 39 39 45 55 28 22 11 57 15 29 34 27 35 12 23 11 20 3 9 14. 168 94 143 125 101 106 262 268 207 TOTAL ENROLLMENTS 408 424 358 (both shifts) ANNEX 9 -56 - Page 2 of 2 C. Diversified Cycle: Enrollments, dropout and graduates by type of course, 1978-1980: Enrollments Total Dropout Graduates Commerce Academic Commerce Academic 1978 111 73 184 22 (12%) 28 37 1979 103 83 186 56 (30%) 20 27 1980 73 62 135 n/a n/a Note: Commercial Courses are of 3 years' duration; academic courses 2 years. D. Retention rates 1978-1979, basic cycle by shift: Morning Shift Evening Shift 1978 90% 76% 1979 84% 62% ANNEX 10 57 - Page 1 of 2 HONDURAS - Loan 954/Credit 452-HO Application Secondary School Timetable 1. Lower Cycle Grades/Semesters 7 8 9 Subject 1 2 3 4 5 6 Spanish 4 4 4 4 4 4 Mathematics 4 4 4 4 4 4 Natural Sciences 4 4 4 5 5 5 Social Studies 4 4 4 4 4 4 Music 3 3 3 - - - Technical Drawing 3 3 3 3 3 3 Physical Education 2 2 2 2 2 2 Modern Languages - - - 3 3 3 Shops 5 5 5 6 6 6 29 29 29 31 31 31 2. Upper Cycle a) Academic Course (2 years) Semesters Subject 1 2 3 4 Mathematics 4 4 4 4 Spanish 4 4 4 4 Chemistry 5 - 5 Physics 5 - 5 History 4 - 5 English 4 - 4 Biology 5 5 Philosophy 5 5 Economics 4 Sociology 4 Psychology 4 Social Problems 4 26 26 27 26 ANNEX 10 - 58 - Page 2 of 2 b) Commercial Course (3 years) Semesters Subject 1 2 3 4 5 6 Accounts 10 10 10 10 15 15 Mathematics 5 5 5 5 4 4 Philosophy 5 Sociology 5 Mercantile Law 5 5 Spanish 5 5 Modern Languages - 5 5 Private Sector Finances 5 Public Sector Finances 5 Economics 5 Statistics 5 4 Customs Procedures 6 Business Organization 5 30 30 30 25 30 29 59 - ANNEX 11 HONDURAS - Loan 954/Credit 452-HO Application Secondary School Comparison of Timetable Loading, Lower Cycle, for Day and Evening Students Years 7 8 9 Day Evening Day Evening Day Evening Subject (Periods Per Week) Spanish 4 4 4 4 4 4 Maths. 4 4 4 4 4 4 Soc. Sciences 4 4 4 4 4 4 Nat. Sciences 4 4 4 4 7 5 Tech. Drawing 3 3 3 3 3 3 Music 3 3 3 3 - - Phys. Ed. 2 2 2 2 2 2 Guidance 1 1 1 1 1 - Woodwork - - - - - 5 Wood/Elect. - - - - 8 - Wood/Metal 8 5 - - - - Home Ec. - - - 5 - - Home Ec./Typ. - - 5 - - - Library 2 - 3 - 2 - English - - - - 3 3 Extra-curric. 3 - - - - - Makeup Classes - - 5 - 2 - 38 30 38 30 40 30 Notes: For day classes the teaching period is 45 mins.; for evening classes 40 mins. ANNEX 12 - 60 - HONDURAS - Loan 954/Credit 462-10 Agricultural Education 1. Agricultural Training Centers Summary of Activities 1978-1979 1978 1979 Center Courses Participants Courses Participants Planned Actual Planned Actual Planned Actual Planned Actual La Lujosa 59 76 1180 1242 72 92 1092 2123 Catacamas 60 69 1261 1280 72 88 1109 2411 La Esperanza 54 74 1080 1943 64 50 999 1600 TOTALS 173 219 3521 4465 208 230 3200 6134 2. Secondary Agricultural School Enrollments and Dropout 1978-1980 Year Enrollments Dropout Initial Present 1978 (3rd year) 101 57* 44 (44%) 1979 (2nd year) 121 71 50 (41%) 1980 (1st year) 112 101 11 (10%) * Expected output 1980 HONDURAS - Loan 954/Credit 452-HO Vocational Training Centers Courses 1979 1. Miraflores Center Tegucigalpa No. of Total Enrollments Dropouts No. of Passes No. of Fails Type of Course Courses Hours M F Tnt-nl M F Total M F T.n M F n Apprenticeship 5 11016 102 3 105 n/a* n/a n/a n/a n/a n/a n/a n/a n/a Skill Upgrading 110 6333 1421 29 1450 147 3 150 1244 25 1269 30 1 31 1 Basic Skill Training 9 5707 158 - 158 54 - 54 94 - 94 10 - 10 Introductory Courses for: Apprenticeship 6 1782 120 - 120 - - - 120 - 120 - - - Skill Upgrading 7 649 122 - 122 11 - 11 101 - 101 10 - 10 Information Seminars 1 9 25 1 26 - - - 25 1 26 - - - Staff Development 3 136 26 2 28 3 1 4 22 1 23 1 - 1 141 25,632 1974 35 2009 215 4 219 1606 27 1633 51 1 52 * Courses in progress (2 1/2-year duration); not included in dropout, pass and fail totals. OQ- Vocational Training Centers Courses 1979 2. San Pedro Suln Center No. of Total Enrollments Dropouts No. of Passes No. of Fails Type of Course Courses Hours M F Total M F Total M F Total M F Total Apprenticeship 3 6908 47 - 47 n/a* n/a n/a n/a n/a n/a n/a n/a n/a Skill Upgrading 45 2977 426 280 706 107 23 130 304 251 555 15 6 21 Basic Skill Training 15 7194 107 159 266 33 17 50 79 128 207 8 1 9 Introductory Course for: Apprenticeship 6 2090 120 - 120 - - - 120 - 120 - - Skill Upgrading 15 437 113 163 276 8 1 9 99 163 262 5 - 5 84 19,606 813 602 1415 148 41 189 602 542 1144 28 7 35 * courses in progress. (2 1/2-year duration); not included in dropout, pass and fail totals. Vocational-Training Centers Operational Plan 1980 Introductory courses for: Basic Apprenticeship Skill Upgrading Apprenticeship Skill Upgrading Skill Upgrading C H P C H P C H P C H P C H P Miraflores 6 2430 90 8 320 120 11 24,300 165 126 1890 7600 8 5620 120 San Pedro Sula 6 1732 90 20 800 300 9 19,882 135 129 1935 7095 20 8100 800 In-Plant Training Industrial Services Agriculture C P H C P H C P H Miraflores 78 1170 2201 102 1530 2876 20 300 563 San Pedro Sula 76 1140 2169 100 1500 2836 20 300 555 0H