Document of The World Bank FOR OFFICIAL USE ONLY lo/A ;2 feq am 0w Report No. 6854-JO STAFF APPRAISAL REPORT HASHEMITE KINGDOM OF JORDAN SEVENTH EDUCATION PROJECT November 11, 1987 Country Department III Europe, Middle East and North Africa Region 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 disdosed without World Bank authorization. CURRENCY EQUIVALENTS US$ 1.00 = Jordanian Dinar (JD) 0.334 JD 1.00 = US$2.99 PRINCIPAL ABBREVIATIONS AND ACRONYMS CCD - Community College Directorate DCT - Division of Certification & Training DET - Directorate of Educational Technology EEC - European Economic Community GCTB - Government Central Tender Board GDPSB - General Directorate of Projects and School Buildings GTD - Government Tendering Directorate HEC - Higher Education Council ICB - International Competitive Bidding JIPA - Jordan Institute of Public Administration m/m - man-month MIS - Management Information System MOE - Ministry of Education MOHE - Ministry of Higher Education PID - Projects Implementation Directorate SEPROC - Science Equipment Production Center SOEs - Statement of Expenditures TA - Technical Assistance TRCs - Training Resource Centers UNRL'A - United Nations Relief & Works Administration VTC - Vocational Training Corporation GOVERNMENT OF JORDAN FISCAL YEAR January 1-December 31 FOR 0MCIL US ONLY HASHEMITE KDIGDOM OF JORDAN SEVENTH EDUCATION PROJECT STAFF APPRAISAL REPORT Table of Contents Pae No. LOAN AND PROJECT SUMMARY . .................. (iv)-(viii) I. INTRODUCTION **... ................****... ................ 1 II. BACKGROUND ........................................... 1 A. The Economy and Manpower Issues ............I............ Economy and the Labor Force ........................... 1 Government's Economic Development Strategy ............ 2 Implications of Government's Strategy for Manpower Development .....*.***...* ........................ 2 B. The Education and Training Sector ..................... 3 Overview ..............****...........*a.............. 3 Access and Equity *J..*....*.**.*.....***..**-*o*..*** 4 Education Cost and Financing ...................4...... 4 Quality of Education ..*a............*........ ..... a..... 5 Quality and Cost Efficiency of Physical Facilities .... 7 Relevance of Vocational Training to Economy's Requirements ............ ......... .* .. *... * .*.* 8 Planning and Management, and Measurement and Evaluation of Education Quality ........****.a*****.q***....... 8 Experience with Bank Lending ........................... 10 Bank Lending Strategy .........*.*************.**..... 10 This report is based on the findings of an appraisal mission that visited Jordan in March-April 1987. The mission members were Messrs. J. Socknat (mission leader); G. Graves (general educator, consultant); E. Dib (architect, consultant); S. Syrimis (technical educator, consultant); I. Werdelin (education measurement and evaluation specialist, consultant). Mesdames D. Scruggs and G. Ghattas assisted with the preparation of the report. This document has a restricted distribution and may be used by tecipients only in the petformance of their official duties. Its contents may not otherwise be disclosed without World Bank authofization. - ii - TABLE OF CONTENTS (cont'd) Page No. II. THE PkOJECT ................ 1*..1.#*.****.***........... 11 A. Project Objectives and Description .................... 11 Project Objectives ................................ .... 11 Project Composition .......4.. 11 Improving the Quality of Education .................... 12 Improving the Quality of Physical Facilities and Reducing Cost Per Student Place ..................... 15 Improving the Relevance of Vocational Training to Labor Market Needs ................ 16 Strengthening Planning, Management and The System for Measurement and E-aluation of Education Quality at the Ministries of Education and Higher Education .... 18 B. Project Cost and Financing Plan ................ ...... 21 Project Cost .. ............. .................. 21 Project Financing .............. * 23 Recurrent Cost and Implications ......... ............. 24 C. Project Implementation ......... ..... * .... 24 Status of Preparation, Implementation and Technical Assistance ..* .. ...... # * .............................................. 24 Procurement ...* ........................*....**.... 26 Disbursements ...... *....................... ..* 29 Auditing and Reporting .. .........*...... .. ......... . 30 IV. BENEFITS ATD RISKS ......... o...... .. ..... ******* ...... *. 30 Benefits .... tS.*.***.****.............................. 30 Risks ........ * .................. ........***. . . ......... 31 Environmental Impact of the Project ........................ 31 V. AGREEMENTS REACRED AND RECOMMENDATIONS ........... .......... 31 - ili - TABLE OF CONTENTS (cont'd) ANNEXES 1.1 Basic Data 1.2 Comparative Education Indicators 2.1 Diagram of Education and Training System, 1987 2.2 Enrollment Data 3.1 Summary of Action Programs and Implementation Schedule 3.2 Technical Assistance Implementation Schedule 3.3 School Construction Program: School Capacities, Types, and Site Locations 3.4 Costs and Areas Per Student Place 3.5 Ministry of Education Implementation Schedule for Furniture, Equipment, Technical Assistance, and Civil Works 3.6 Chart 1 - Organization Chart of the Ministry of Education Chart 2 - Organization Chart of the General Directorate of Projects and School Buildings i.7 Organization Chart of the Ministry of Higher Education 3.8 Selected Documents and Data Available in Project File 3.9 Schedule of Disbursements MAP: IBRD 20618 ic- IK' 'Itl T 4qt4l WN (iv) HASHEMIT.E KINGDOM OF JORDAN SEVENTH EDUCATION PROJECT LOAN AND PROJECT SUMMARY Borrower: Hashemite Kingdom of Jordan Beneficiaries: Ministries of Education & Higher Education Loan Amourt: US$40 million equivalent Terms: 17 years, including 4 years of grace, at the standard variable interest rate. Prolect Description: The proposed Project would assist the Government of Jordan to further develop and implement its medium-term education and training strategy. The Project would focus on improving the quality, relevance and cost efficiency of education, on institution building, and on strengthening the linkage between education/vocational training and skilled manpower demand. Objectives of the Project are to: 1. Improve the quality of basic education by: (a) introducing a cost-effective in-service training program which would upgrade the skills of about 30,600 basic education teachers and staff; and for the secondary school teachers, introducing pedagogical courses geared to their skill deficiencies; and (b) increasing the availability of instructional materials and ensuring their effective use by the teachers. 2. Improve the quality of physical facilities and reduce cost per student place by: (a) replacing pedagogically unsuitable rental premises with 58 compulsory-level schools (65,400 student places) and by applying the recently revised, cost-effective accommodation norms and design standards to all compulsory-level schools to be constructed; and - v - (b) helping to maintain the value of existing investments through str7agthening of the school maintenance system. 3. Improve the responsiveness of vocational training to labor market needs by: (a) introducing pilot vocational programs for girls in areae of rapid employment growth; (b) initiating office technology and computer maintenance training as part of vocational training programs; and (c) adapting community college curricula and programs to meet labor market needs more effectively. 4. Strengthening education planning, management, and the system for measurement and evaluation of education quality: (a) improving access to and use of Management Information Systems at the Ministry of Education to enhance the efficiency of decision-making process; (b) establishing an integrated system for measuring student and teacher performance and evaluating the effects of different combinations of educational inputs on quality and cost; (c) building up the information base through a series of studies to help develop policies and programs to address resource constraints and improve the linkage between education and labor market demand; and (d) strengthening project implementation capacity. - vi - Estimated Project Costs:&' Local ForejLn Total --- (USS million) Project Component 1. Improving Q-tality of Education Teacher Upgrading 6.1 1.1 7.2 Instructional Materials 0.6 4.5 5.1 Subtotal 6.7 5.5 -12.3 2. Improving Quality & Lowering Unit Cost of School Facilities Construction of 58 Schools 37.6 32.3 69.8 Maintenance 0.1 0.1 0.1 Subtotal 37.6 32.3 69.9 3. Improving Training/Labor Market Linkage Expanding Training Programs for Girls 0.4 G.6 1.0 Establishing Office Technology/Computer Trg 0.1 0.6 0.7 Adapting Community College Programs 4.1 1.6 5.6 Subtotal 4.6 2.8 7.4 4. Planning, Management, Quality Measurement and Evaluation MOE Management Information System 0.0 0.3 0.3 Strengthening Exam and Testing System 0.1 0.3 0.4 Strengthening Projects Department 0.0 0.3 0.4 Subtotal 0.2 0.9 1.1 Total Base Cost 49.1 41.6 90.7 Physical Contingencies 3.9 3.7 7.6 Price Contingencies 8.2 1.8 10.0 Total Project Cost 61.2 47.1 108.3 FINANCING PLAN Government 61.2 4.6 65.8 Bank 0.0 40.0 40.0 EEC 0.0 2.5 2.5 Total a/ Estimates include taxes and duties of US$4.1 million financed by the Government. NOTE: Subtotals and total figures do not add up due to Costab rounding. - vii - Estimated Disbursements (in US$ Million): Bank Fiscal Year 1988 1989 1990 1991 1992 1993 1994 Annual 2.0 3.0 8.5 10.5 8.5 5.5 2.0 Cumulative 2.0 5.0 13.5 24.0 32.5 38.0 40.0 Economic Rate of Return: Not applicable Benefits and Risks: Through the introduction of a practical, on-the-job training program geared to specific needs of teachers, 30,600 basic education teachers, headmasters and supervisors are expected to be upgraded during the seven-year project period. This scheme would replace the current practice of maintaining teachers at full pay and awarding them full fellowships to pursue higher-degree programs for upgrading purposes. The net savings through the new program is estimated at US$71.8 million. A similar scheme geared to secondary school teachers would introduce pedagogical skill training courses and, in comparison with the existing fellowship program, accelerate the speed by which teachers can be upgraded and reduce the training cost per teacher. The school construction program would provide 65,400 student places. Application of the recently revised accommodation norms and design standards would reduce the gross area per student by about 37% and cost per student place by about 20%. It is estimated that by using these cost-efficient norms and standards, the Government could, on the 60 largest schools to be constructed under the Third Five-Year Plan alone, realize savings on the order of JD 10 million (US$29.9 million equivalent). In addition, replacement of the small, overcrowded rooms in rental facilities with proper classrooms would help improve quality of learning. Through the planning- and policy-oriented studies to improve the linkage between higher education and the changing needs of the domestic and the external labor markets, employment opportunities of graduates are expected to be enhanced. Introduction of vocational training programs for girls in areas offering high employment potential would - viii - facilitate their integration into the labor market. Further support to institution building would improve longer-term planning and resource management at the level of the Ministries of Education and Higher Education. Strengthening of the educational testing, measurement and evaluation system would help guide decisions on how to use increasingly scarce resources for maximum impact on education quality. The proposed Project does not pose major risks on th substance of project components. With respect to implementation, the Government has had an excellent track record in carrying out Bank-financed projects in the sector in the past. However, to guard against any potential risk related to realization of project objectives in a timely manner, a series of detailed action programs and schedules have been agreed upon with the Government. These programs call for periodic joint reviews on specified dates as well as implementation of specific follow-up actions resulting from these reviews to be carried out by the Government. c~~~-q$ e4 THE HASHEMITE KINGDCOM OF JORDAN SEVENH EDUCATION PROJECT L INTRODUCTION 1.01 The Government of Jordan has requested Bank assistance in financing a project to further develop and implement its medium-term education and training strategy. The proposed Project would focus on improving the quality, relevance and cost-effectiveness of education, on institution building, and on strengthening the linkages between higher education/vocational training and manpower demand. The estimated project cost is US$108.3 million equivalent, of which the foreign exchange component is 442. The Government would contribute about US$65.8 million. The remaining US$42.5 million would be financed by the Bank (US$40.0 million) and through a technical assistance grant (US$2.5 million) by the European Economic Community (EEC). The proposed Project would be exempt from taxes and duties. The Basic Data Sheet is at Annex 1.1 and Comparative Education Indicators are at Annex 1.2. IL1 BACKGROUND A. The Economy and Manpower Issues Economy and the Labor Force 2.01 Constrained by a meager natural resource base, Jordanian planners have for many years placed high priority on the development of the country's human resources through education and training. This has helped Jordan expand its industry and develop its agriculture, but more importantly, it has enabled the country to place its well-qualified labor force in the oil-rich states of the Gulf. During the late 1970s, when employment in the Gulf States was expanding, over one-third of the Jordanian labor force emigrated to these countries. The resulting inflow of worker remittances contributed substantially to Jordan's domestic economic growth, which averaged 12% per annum for the period 1975-80. 2.02 The economic recession, which began in 1983 with the weakening of oil prices and a slowdown in the neighboring economies, continues. GDP, in real terms, grew only 22-32 per annum during 1983-86 as a result of a sharp fall in the export of manufactured goods and non-factor services; stagnation of workers' remittances (which amount to 1.3 times the export of goods and finance 40% of imports); and the decline of foreign aid (by over 502). The Government recognizes that prospects for only moderate economic growth in the region present Jordanian planners with the need to adjust the country's development strategy to the new economic circumstances. The Government also recognizes that the high rate of natural increase (3.42 per annum) will - 2 - require a commensurate increase in public resources just to sustain the current level of access to services. Projections indicate that lower levels of grant aid, particularly from the oil-rich Arab countries, and the diminishing flow of workers' remittances, together with Jordan's heavy reliat.ce on imports, will increase the external borrowing requirements during the Plan period and place a heavy debt burden on the economy beyond 1990. The resulting budgetary constraints will necessitate more efficient allocation and use of resources in order to meet the basic ne'. ds of a rapidly growing population. 2.03 Fueled by the fast population growth and an increase in female participation in the formal education system, the Jordanian labor force is projected to grow, in the medium term, by 5% per arnum. This, coupled with the substantially declining external demand for Jordanian labor due to the economic slowdown in neighboring countries, is expected to lead to a potential increase in unemployment over the next five years. As a result, the manpower problem in Jordan is expected to shift from a situation of selective shortages that triggered a substantial inflow of non-Jordanian labor in the past, to one of finding employment for a rapidly increasing domestic workforce. rrojections also show a pattern of imbalances, with large surpluses of some white collar workers and major professional categories and significant shortages of blue collar workers. Improvements in the quality of training and the development of relevant vocational programs are therefore needed to obtain a skilled labor force responsive to the changing domestic and external labor market requirements. Government's Economic Development Strategy 2.04 While the previous Five-Year Plan emphasized exploitation of natural resources through large, capital-intensive projects, the thrust of the 1986-90 Plan is to generate employment and incomes through the development of small- and medium-scale manufacturing enterprises and technical service firms directed at the export market, and agriculture. The increase of public investment in education and manpower training, from 9.4% in the 1981-85 Plan to 11.9% in the 1986-90 Plan, is consistent with this shift in development strategy. In the recent Bank review of the Five-Year Plan, the export-oriented employment and growth strategy is endorsed and encouraged. Indeed, the Bank's priority objectives for assistance to Jordan include: (a) further development and implementing the new strategy for employment and growth which focuses on labor-intensive, small- and medium-scale industries; (b) development of the human resources necessary to sustain this strategy; and (c) cost-effective delivery of social services, with emphasis on basic needs. Implications of Government's Strategy for Manpower Development 2.05 The education and training system has a strong base from which to respond to the manpower demands of the 1986-90 Plan. The major challenge is to enhance the quality and relevance of the system, sustain enrollment rates in the face of rapid population growth, and achieve these objectives without significantly increasing the share of education and training in the Government budget. The Plan recognizes that vocational training programs should be -3- cost-effective, maximize private sector contributions, and focus, in particular, on the needs of small- and medium-scale enterprises exporting goods and services. Specific priority areas are: (a) improvement and expansion of vocational training programs for "blue collar" skilled and semi-skilled workers and supervisors, particularly for industry; (b) reinforcement of management training, especially in-service upgrading for the current corps of public and private sector managers as well as pre-service training for potential managers of new, more sophisticated enterprises; (c) development of appropriately-skilled manpower to manage and operate small- and medium-scale enterprises; and (d) expansion of training programs for health technicians and para-professionals. With respect to education, the Plan strategy emphasizes the principles of equity, efficiency, quality, and relevance; it also reiterates the focus on the schooling of girls and highlights the inverse relationship between the education of women and fertility. B. The Education and Training Sector Overview 2.06 Jordan's general education system is well-developed. Basic education (Grades 1-9) is compulsory, and female and rural students are equitably represented in primary and secondary schools. In keeping with a major education policy decision of 1984, a secondary school admission examination has been introduced, and of those who pass this examination, no more than 60% of males and 70% of females are allowed to enroll in general (academic) secondary schools (Grades 10-12). Others may enroll in the Ministry of Education (MOE) vocational education programs or in vocational training programs sponsored by other agencies, including the Vocational Training Corporation (VTC). Approximately 60% of students completing secondary school enter higher education institutions in Jordan, with about two-thirds enrolling in the country's 52 private and public community colleges (one to three years post-secondary) and one-third enrolling in the four public universities. The MOE, under the guidance of the National Board of Education, is responsible for formal education and training which includes primary, lower and upper secondary general and vocational secondary schools. The Ministry of Higher Education (MOHE), established in 1985, is responsible for higher education, namely the universities, post-secondary polytechnics and community colleges. Policies f r higher education are established by the Higher Education Council (HEC), chaired by the Prime Minister and consisting of membership from university boards of trustees and royal commissions. The HEC's functions include approvals for establishment of higher education institutions and fields of specialization, the setting of tuition fees, the securing of financial resources and approval of budgets. The universities are governed by their own boards which are responsible for establishing general policy guidelines and determining each year the number of students to be admitted to the different faculties. A number of other ministries, in particular the Ministry of Health and the VTC, an autor,omous government agency affiliated with the Ministry of Labor, are active in training related to their special -4- fields. In addition, there is a vigorous effort in job-oriented vocational training in the private sector. There are, for example, 20 private community colleges which offer post-secondary courses that are responsive to the job market. These courses are principally in commercial specializations. An important vehicle for developing/upgrading skills in the area of management is the Jordan Institute of Management, which provides a broad range of courses and seminars for central and local government authorities and also for private sector managers. Access and Equity 2.07 The 1985/86 gross enrollment ratios illustrate the extensive coverage of the school-age population: primary (Grades 1-6) - 112.6%; preparatory (Grades 7-9) - 97.0X; secondary (Grades 10-12) - 65.2X; and higher education - 24.4% (Annex 1.1). Jordan's primary school enrollment ratio exceeds that of comparable countries in the region (e.g., Algeria, Egypt and Morocco), and enrollments in secondary education are the highest in the Middle East (Annex 1.2). Female enrollment growth rate (4.2% per annum) has consistently outpaced that of males (3.32 per annum). In 1986, females, who represent 48.4% of the school-age population (ages 6-21), accounted for approximately 48Z of total school enrollments. Access to schooling is equitably provided to youth in rural and remote locations, due to the MOE policy of providing classrooms in any catchment area with 15 or more students. Jordan's vocational training system has developed significantly over the past decade. It currently enrolls about 32,000 students and includes a growing network of MOE secondary vocational schools and a rapidly expanding apprenticeship system for skilled and semi-skilled worker training run by the Vocational Training Corporation (VTC). The structure of the education system and enrollment data are presented in Annexes 2.1 and 2.2, respectively. Education Cost and Financing 2.08 In 1986, the education and training sector consumed about 8.5X of the GDP, translating to JD 46.5 (US$118 equivalent) per capita, which is high by regional standards. Jordan has an impressive record of private sector contribution to education and to vocational training. In 1986, private contributions to the sector represented about US$7.5 million. The share of recurrent expenditures on education in the Government's budget was 20%. About two-thirds of this expenditure was for schooling provided by the MOE, the '.(HE, the VTC, and other government ministries and agencies; about one quarter was for Jordanians enrolled in higher education abroad (about 38,000 and nearly all studying at their own expense), and the remainder was split, roughly evenly, between schooling provided by the private sector (at all levels from kindergarten through community college) and the United Nations Relief and Works Administration (UNRWA). Three-fourths of all students in East Bank schools are enrolled in institutions administered by the MOE, MOHE and other government agencies. The private sector provides schooling for about 10% of all students, including 98% of all kindergarten, 6% of primary, preparatory and secondary, and 56% of community college enrollments. UNRWA accommodates 182 of compulsory-level students as well as providing small shares of secondary and post-secondary level training for skilled and -5- technical occupations. In addition, the Government has mobilized a variety of extra-budgetary resources for the sector. For example, funding for general and vocational education provided by the MOE is supplemented by voluntary tuition fees, municipal education taxes, and community contributions for school construction, which altogether amount to over 10% (JD 14.8 million or US$44 million equivalent) of the MOE budget. The VTC programs are supported by tuition fees (3% of recurrent expenditures), and employers provide on-the-job training which amounts to about 50% of course training hours. Legislation to establish a reimbursable 1% payroll training tax on private sector establishments is pending and expected to be passed before the end of 1988. This would finance about 501 of VTC's recurrent costs. Higher education is partly financed by earmarked custom duties, tax q and student tuition fees; together, these cover about one-third of the recurrent and capital costs. However, with about one-third of students ittending universities on scholarships from government agencies, the non-governmental revenue potential of the tuition fee structure is only partially realized. Quality of Education 2.09 At the school level, two principal factors adversely affect the quality of education: the inadequate pedagogical skills of teachers and the insufficient number and ineffective use of instructional materials. 2.10 Teacher Qualifications. The MOE currently employs about 29,000 teachers in basic education (Grades 1-9) and 7,000 in general secondary schools. At present, a two-year post-secondary community college diploma is the required qualification for basic education teachers and 951 of them are so qualified. Qualification requirement for general secondary-level teachers is a post-graduate education diploma. Only 8% of secondary teachers currently meet this requirement. Of the remainder, 65b have a university degree but no adequate teaching-training qualifications, and most of the remaining 27% have only a community college diploma, the qualification for basic education teachers. Even those teachers who meet the formal qualifications have a wide range of training needs in skill upgrading and updating, especially in applied pedagogical skills. Likewise, school principals and supervisors are generally in need of upgrading training in school management and administration. At present, the MOE provides for two types of upgrading training. The first consists of short, in-service upgrading/refresher courses in pedagogy which are offered during summer vacations. The second is a "fellowship scheme" offered for full-time study in pursuit of a higher degree. The first program has not been satisfactory as evidenced by the 50% drop-out rate. One reason is the program content: it does not adequately respond to specific needs of teachers. Another possible reason is the lack of appropriate incentives such as those awarded to participants of the fellowship scheme. To address this issue, the Government has recently established a set of incentives to etncourage teachers to complete MOE-approved, job-related training (para. 3.04). The second program, the fellowship scheme for basic education teachers is for two years, and for secondary education teachers, who already hold a degree, one year. This fellowship scheme poses several concerns: (i) most of the programs do not provide training in classroom skills or respond to teachers' other specific needs; and (ii) it is costly because MOE finances the tuition and other training costs, and it also pays the teachers attending the program as well as the substitutes who replace them. It is estimated that the incremental recurrent cost of upgrading all of the basic education teachers would be JD 62.6 million (US$187.4 million equivalent) for direct training costs and JD 87 million (US$260.4 million equivwlent) for substitute teacher salaries. Similar shortcomings affect the secondary school teacher upgrading program: direct costs are estimated at JD 6.3 million (US$18.8 million equivalent) and costs for substitute teachers at JD 14.0 million (US$41.9 million equivalent). It is therefore imperative to develop adequate interim in-service teacher training courses which are practical and affordable and which would, in the shortest possible time, eliminate the existing backlog of teachers to undergo upgrading training (paras. 3.03-3.05). 2.11 Availability and Use of Instructional Materials. Studies suggest"' that investment in instructional materials and appropriate curricula is the most important factor in improving the quality of education and that even a slight increase in the availability and proper use of instructional materials can have a highly beneficial impact on educational achievement. Jordan has a well-established and smooth-functioning curriculum development system and has made significant progress in preparing suitable textbooks and other instructional materials for both basic and secondary-level education. In 1986, the MOE budget allocated about JD 2 million or US$5.9 million equivalent (2.82 of the MOE budget) for textbooks and for the production and distribution of related instructional materials. In addition to these centrally budgeted funds, about 602 of the tuition fees charged are retained at school level and spent on inst:uctional materials and library books (JD 1.26 million or US$3.7 million equivalent i.i 1986). Altogether, the amount spent on instructional materials represented 4.6% of recurrent MOE expenditures in 1986. By regional standards, this level of expenditure is a notable achievement. Nevertheless, at both the basic and secondary education levels, teaching/learning aids and materials have not complemented the curricula and have oriented the students to learn by roce rather than through reasoning and application. The distribution of instructional materials, other than textbooks and blackboards, is uneven (paras. 3.06 and 3.07), and these materials are inefficientlv utilized because teachers are not properly trained in their use (para. 2.10). Regarding textbooks, the present policy is to supply them free to all basic education students, on the condition that students in Grades 5-9 return them for recirculation or pay the cost of replacing them. Unfortunately, 402 of the stock is lost each year while less than 10% of this loss is recovered by fines. By September 1988, the Government proposes to introduce a new scheme, prepared with Bank assistance, which involves taking a deposit for books when they are issued. Finally, concerning the supply of science equipment, the Government is considering a restructuring of the Science Equipment Production Center (SEPROC). The Federal Republic of Germany has proposed an extensive program of technical assistance to help develop SEPROC. The Government plans 1/ Raising School Quality in Developing Countries: B. Fuller, World Bank Discussion Papers, No. 2: 1986. to contract two studies on restructuring SEPROC and identifying which items can be produced cost-effectively. 2.12 Quality and Cost Efficiency of Physical Facilities. The Government, in its efforts to provide access to basic education for the rapidly increasing school-age population, has fallen behind in the construction of school buildings and has had to resort to rental facilitles, mainly private houses. In 1985, total enrollment in public compulsory schools was 519,500, of which 238,900 (45.9X) students were accommodated in rented premises. In spite of a major construction program which would provide 29,700 student places under the ongoing Bank-financed Fifth and Sixth Education Projects, and an additional 196,200 places under the Third Five-Year Plan (Government, 94,800 places; USAID, 36,000 places; and the proposed Seventh Education Project, 65,400 places), it is estimated that by 1993 total compulsory-level school enrollments would increase to 699,000, of which 172,000 (24%) would still be accommodated in rented premises. 2.13 Conditions in these rented "schools" are particularly unsatWsfactory, and the quality of the teaching and learning is adversely affected. Main problems include inadequate sanitary facilities creating health hazards, poor lighting, impediments to smooth student circulation, absence of library and/or multi-purpose rooms and storage facilities, and limited, if any, playground areas. Classes are overcrowded because the rooms are small. Rented buildings are also less cost-effective than purpose-built facilities because they allow less effective use of teaching staff. 2.14 School maintenance operates through two programs. One deals with the urgent major repairs identified during annual reviews. This program is run by the Department of School Building Maintenance in the GDPSB. The other program is referred to as the mobile maintenance system and handles preventive maintenance and minor repairs. The mobile maintenance system, which was established with Bank support (Third Education Project), is managed by District Education Offices. Currently, these units service only 15 of the 22 education districts and need to be increased to provide full coverage. Even within individual districts, the coverage is inadequate given the large number of schools to be serviced. School maintenance encounters difficulties with respect to budgetary resources, personnel, and maintenance management. In the 1984/85 school year, JD 1.1 million (about US$3.8 equivalent) was spent on major maintenance and repairs. This translates to about JD 785 (about US$2,300 equivalent) per school or JD 1.3 (about US$4.0) per square meter. The funds allocated for maintenance in the MOE budget and those earmarked for maintenance by headmasters from voluntary tuition fees are not adequate to keep up with the major maintenance/repair requirements, let alone handle minor repairs and do preventive maintenance. With respect to personnel, the shortage of civil engineers and technicians, and the rapid staff turnover are major problems. Finally, maintenance management is not well developed. Recognizing that maintenance budgets are not likely to have a significant increase, it is necessary to strengthen the planning of maintenance activities and develop practical solutions to enable more efficient use of available budgetary and personnel resources. Among the alternative solutions to be considered is subcontracting to private enterprises. - 8 - Relevance of Vocational Training to Economy's Requirements 2.15 In 1984, the Government announced its decision to increase enrollments in vocational education and training programs at the expense of general secondary education and set as its target 46% of the boys and 30% of the girls who complete basic education (grade nine). By 1985-86, 28% of secondary school-age boys and 20% of gir's were enrolled in vocational education or training. Although enrollments are rapidly increasing towards the targets, changing domestic and regional labor market requirements, as well as changing technology, necessitate continued adjustments to curricula. Accordingly, the Government proposes to introduce office technology, computer maintenance training, an increased number and range of vocational training programs for women, and improved community college programs (paras. 3.11-3.13). 2.16 Office Technolpgy_and Computer Maintenance Training. The shortage of modern office technology skills is being increasingly felt in both the local and the regional labor markets. Duri,ng early 1987, the MOE Department of Vocational Education, as part of its program planning, conducted a survey which confirmed the growing demand in both the private and public sectors for skilled personnel in minor computer repairs and maintenance (para. 3.11). 2.17 Vocational Programs for Girls. Although the Government has realized a recognizable increase in female participation in vocational training, additional efforts are needed to expand training opportunities and provide girls with easily marketable skills. To this end, the Government proposes to experiment with pilot programs for girls in one school and if successful, convert 50 other existing girls' general secondary schools into vocational schools by adding appropriate facilities for training in areas of market opportunities. Programs would include modern office technology and nursing (para. 3.12). 2.18 Adaptation of Community College Programs. Public and private community colleges, which started in the late 1970s, have experienced a rapid growth. Program offerings of these colleges have played a vital role in training technicians who were sorely needed in the domestic and regional labor markets. The rapid expansion of colleges (52 at present) and course offerings (over 100 fields of specialization) has, however, outpaced the capability of the Government to identify and develop programs in emerging areas of high labor market demand. The Government has taken steps to develop a system for community college accreditation; it has also established a national examination for community colleges in an effort to ensure the quality of graduates. The MOHE is now launching a major review of community college curricula, with special emphasis on their occupational relevance. In addition, the MOHE is undertaking a complementary effort to improve the validity and relevance of the internal community college examinations as a means of safeguarding their quality (para. 3.13). Planning and Management, and Measurement and Evaluation of Education Quality 2.19 With respect to general education (primary and secondary), the MOE institutional capacity needs strengthening in two priority areas: the flow of - 9 - relevant information for effective and timely decision-making by management, and efficient planning and resource allocation based on the accurate testing, measurement and evaluation of education quality. First, the Management Information System (MIS), established in 1983 with Bank support, needs to be expanded in capacity to service the Directorates of Examinations, Personnel, Planning, Finance, Projects and School Buildings. This would enable speedier processing of administrative work and provide access to data files which facilitates decision-making and inter-divisional coordination. Second, the existing systems for testing and measurement of student and teacher performance as well as for monitoring and evaluating the impact of education inputs on quality have not been adequately developed. On the testing and measurement side, results of certification examinations, for example, show substantial variations over short periods. To illustrate, the success rate for the General Secondary Examination Certification for the 1983/84 school year was 49X, whereas for the 1985/86 school year it was 64.02--too significant a variation to be explained by qualitative changes. One of the main reasons for this variation is the lack of a test bank to serve as a basis in the preparation of objective tests which are related to curricula and which are consistent over time. On the evaluation side, the lack of valid baseline data to be used in comparing achievement rates over time or under different combinations of inputs, or with those of other countries. In recognition of these deficiencies and the need for coordination between testing and evaluation, the Government, under the January 1987 reorganization of the MOE, merged the Directorate for Testing and Measurement with that for Evaluation and Follow-up and created the General Directorate of Examinations (GDE). This structure needs to be strengthened by building up the technical capacities of its staff and establishing a well coordinated system which integrates testing, measurement, evaluation and follow-up activities and which ensures that the results are reflected in the planning process (paras. 3.15 and 3.16). 2.20 With respect to higher education, this subsector has experienced a dramatic increase in enrollments over the past decade (from 10,000 in 1976 to 54,000 in 1986). This rapid enrollment growth has not, however, been accompanied by the development of institutional capacity, especially since the MOHE was created only in 1985. Strengthening of MOHE's higher-education planning capacity becomes paramount in light of the fluctuating levels of aggregate demand as well as the shifting demand for a different mix of skills (such as advanced technology, management). Accordingly, higher education programs need to be geared to what the markets demand. In addition, cost-efficiency of higher education, especially higher levels of cost recovery, needs to be a paramount objective because of resource constraints. The continued flow, at the present levels, of extra-budgetary resources are not likely to increase in tandem with increased enrollments. Similarly, the share of higher education in the government budget is unlikely to increase. The Government recognizes that formulation and clear articulation of a higher education policy that would control the random and heavy enrollment in some disciplines and orient higher education to meeting social and economic goals is necessary. To these ends, the Government intends to cociduct a series of issue-specific studies to help revise curricula, adjust student flows, examine the possibility of increasing user fees, and analyze employment status of graduates (para. 3.17). - 10 - Experience with Bank Lending 2.21 Since 1972, the Bank has been assisting the Government in the development of Jordan's education and training system through two credits and five loans. The experience with past lending has been satisfactory. The first six projects have helped establish the institutional structure for secondary and vocational schools and community colleges by training administrative and specialized personnel. The Project Performance Audit Report (No. 2494, Sec. M79-336) on the First Education Project noted its institutional impact in many areas, especially educational planning. The recommendations of the report, including improved procurement procedures, better coordination of technical assistance (TA), more effective scheduling of required inputs and timing of implementation, and more extended training in management and administration, have been taken into consideration in the implementation of subsequent projects. The Project Completion Report on the Second Education Project (PCR No. 4261) concluded that it contributed to the expansion of vocational and technical education in Jordan at a time when demand for skilled labor was increasing. It also noted that the physical components were well executed, that the quality of construction and equipment was very good, and that all major TA components were fully implemented; there were, however, delays and cost overruns during implementation. The Completion Report on the Third Education Project (PCR No. 6251) found that, while physical construction objectives were substantially achieved, site acquisition and poor contractor performance on some components led to some delays. Qualitative objectives could not be fully evaluated for lack of an appropriate system. Concerning TA, the Report recommended that, in the future, fellowship training should be emphasized in preference to specialist services and that language training should be provided to improve communication between specialists and counterpart staff, as well as to prepare candidates for overseas training. These recommendations have been taken into account in the proposed Project. Implementation of TA in the Fourth Education Project is proceeding smoothly, as is construction and equipment procurement for the schools under the Fourth and Fifth Education Projects. For the Sixth Education Project, co-financed by the Islamic Development Bank, standardized designs were developed and construction of schools is underway. The Manpower Development Project supports development of flexible and responsive pre-employment and skill ugrading programs by the VTC and assists the Jordan Institute of Public Administration (JIPA) in management training. The Fourth Education Project and the Manpower Development Project also support the Ministry of Health's programs for nursing and paramedical training. Implementation of the Manpower Development Project is six months ahead of schedule for the VTC and JIPA components. In the area of TA, the capacity of the MOE to manage programs has improved significantly. In -he Third and Fourth Projects, TA was financed by UNDP and managed by the Bank. Since then, with Bank support, the MOE has sufficiently deve'loped its capacity to manage TA, which it has been doing for the Fifth and subsequent projects. Bank Lending Strategy 2.22 A proposed FY90 project would help support industrial productivity and growth by providing the required mix of skill training through - 11 - cost-efficient and short-duration programs and by introducing appropriate policy measures to improve responsiveness of the education and training sector to industry's needs. III. THE PROJECT A. Project Objectives and Description Project ebictives 3.01 The proposed Project would assist the Government to further develop and implement its medium-term education and training strategy. The overall objectives of the Project are to improve the quality, relevance and cost efficiency of education; reinforce institution building; and strengthen the linkage between education/vocational training and skilled manpower demand. The Project was identified and prepared by the Government with the assistance of three Bank missions (in December 1985, and in July and November 1986) and was appraised in April 1987. Project Composition 3.02 Within the framework of the broad objectives provided above, the Project would consist of the fo'llowing components: (a) Improving the quality of education by: (i) introducing cost-effective teacher upgrading programs for basic education and secondary school teachers; and (ii) increasing the availability of instructional materials and training teachers in using them effectively. (b) Improving the quality of physical facilities and reducing cost per student place by: (i) replacing pedagogically unsuitable rented premises with 58 compulsory-level schools and by applying cost-effective design norms and space standards; and (ii) strengthening school maintenance systems. (c) Improving the responsiveness of vocational training to skilled manpower needs by: (i) introducing pilot vocational programs for girls in areas of rapid employment growth; (ii) initiating office technology and computer maintenance training; and - 12 - (iii) adapting community college curricula and programs. (d) Strengthening education planning, management and the system for u*easurement and evaluation of education quality by: (i) expanding the use of the Management Information System by the key directorates of MOE; (ii) establishing an integrated system for measuring student and teacher performance and evaluating the effects of different combinations of educational inputs on education quality and cost; and (iii) strengthening project implementation capacity. Improving the Quality of Education 3.03 Teacher Upgrading. To help upgrade/update the pedagogical skills of basic education teachers, headmasters and supervisors, the proposed Project would introduce an on-the-job training program that focuses on identified skill development needs of teachers. By December 1994, about 30,600 education staff, comprising headmasters, supervisors, and 29,000 basic education teachers, are expected to have undergone this upgrading training. The proposed program would generally consist of 200 hours of instruction spread over a maximum of 18 months; the 200-hour course would be based on two intensive, full-time summer courses supplemented by weekly seminars and classroom visits by the trainers. The upgrading program would include training in test administration (para. 3.17) and in the use of instructional materials (para. 3.08). The new scheme would be introduced by the MOE Division of Certification and Training (DCT) in two phases and would be carried out in community colleges in each district. During the first phase, from October 1987 (prior to start of the Project) to September 1989, DCT would prepare the teacher training programs and train the teacher training staff. A working group of DCT staff would be established to prepare the criteria for selection of teachers and identification of their training needs. These specialist working groups composed of education supervisors, school principals, and senior teachers would then be organized to prepare approximately 15 teacher training programs designed to meet the identified training needs. From April 1988 to June 1989, teacher training specialists would be recruited from community colleges and universities to prepare training materials. From June to September 1989, the training specialists would train about 100 experienced teachers and teacher-trainers to undertake the second phase which would begin in October 1989. About 5,000 basic education teachers and staff would participate in the program each year. Performance of teachers and other staff who have participated in the program would be assessed annually and the necessary modifications would be introduced. Annex 3.1 provides further detail.s on the program. During negotiations, the Government provided assurances that by January 1990 the MOE would enroll about 5,000 teachers and would continue to implement the new in-service upgrading scheme for basic education and secondary teachers on a scale necessary to meet project targets on schedule (para. 5.02a). - 13 - 3.04 The Government has recently established a set of incentives to encourage school teachers to undertake training in skill upgrading. Included among these is awarding a six-month seniority, on the Civil Service Regulation Scale, along with all the benefits and privileges, for every teacher successfully completing an MO0-approved, job-related training program (para. 2.10). It is estimated that teachers trained under the new scheme would receive an increment of JD 25 per annum (US$75), and by the year 2000 the Government would have paid a total of JD 7.7 million (US123.0 million) in training costs and salary increments for 30,000 teachers. The proposed teacher skill upgrading program is considered an adequate teaching qualification, at least in the interim period. By contrast, if the previous fellowship training for upgrading scheme were to be sustained at present rates (750 graduates per annum) until the year 2000, the estimated cost to the Government would be JD 60.24 million (US$180.4 million) in training costs, substitute teachers and salary increments; and only 9,000 teachers, or about 30% of the backlog, would be upgraded. 3.05 A similar upgrading scheme would be applied for the secondary school teachers, 92% (6,440) of whom have no adequate pedagogical training (para. 2.10). Secondary school teachers are recruited at the bachelor-degree level and many of them have not had any training in applied pedagogical skills since such training is not part of the general degree program. Currently, the only applied pedagogical skills training/upgrading available to them are the one-year full time programs providing a diploma in education. Many of the recruits do not undergo this additional program prior to joining the teaching force. In order to facilitate and accelerate the training of these teachers in applied pedagogical skills, the Project would assist MOE, in collaboration with MOHE, to set-up specialized courses in pedagogy at community colleges and universities. Teachers would be able to attend these courses on their own time. This would helo reduce the number of skill-deficient teachers faster than the one-year diploma courses, would be less costly, more effective and more relevant. In support of this scheme and also to encourage new recruits to finance their own pedagogical training, during negotiations the Government pr.vided assurances that the MOE would ensure that incentives are adequate to attract the required number of secondary education tea^hers and that with effect from September 1990 teachers who 1ave followed an approved program of pedagogical training as part of their degree courses (para. 5.02b) will have priority in appointment. Annex 3.1 provides additional details on the program. 3.06 Instructional Materials. To support quality improvement efforts, the Government has prepared a comprehensive program for procurement, production, and distribution of instructional materials, equipping of school libraries with books, the introduction of a textbook rental scheme, and the training of teachers in using instructional materials effectively. With respect to production, the Educational Television and Radio Division of the MOE has planned the production of 30 hours of supporting programs for each of the ten subjects each grade of the secondary school curriculum (900 program hours), and 30 program hours on each of the six subjects for each of the final three - 14 - years in the basic education curriculum (540 program hours). Production of these programs is well underway. The completed programs have been distributed to schools through the national broadcasting network and by video and audio cassettes. Evaluation of their use in the classrooms is being systematically conducted by district supervisors and the results are encouraging. Completion of the remaining programs (24% of scheduled production for basic education and 512 for secondary education) is behind schedule because of the difficulties encountered in the timely training of new staff to replace staff going on retirement. To accelerate program production according to scheiule, the Project would provide training for nine overseas fellowships for 27 man-mou.th (m/m) (Annex 3.2) as televisicai and radio producers, studio technicians, and animators. All schools would be equipped with monitors and receivers as part of the effort to upgrade quality in Grades 7-12. With respect to procurement and distribution, the Project would provide support to the MOE to increase the availability and equitable distribution of instructional materials by equipping each school with basic audiovisual aids and equipment and ensuring their effective use through modular in-service training programs for teachers. The Directorate of Educational Technology (DET), with the assistance of curriculum specialists have prepared, in April 1987, basic lists of teaching/learning aids needed for each subject and each grade of the basic education curriculum (Grades 1-9). These lists include teaching/learning aids and materials which can be produced by teachers. The DET has also completed an inventory of audiovisual aids available in each school. Based on the results of these two exercises, lists of items and quantities required to equip each school (including equipment needed by teachers to produce their own instructional materials) have been prepared by DET and reviewed by the Bank. Project ft'nds would finance the additional iterials and equipment needed (-lides, iilms, and overhead projectors, TI monitors and video-cassette players) to equip each school according to the specifications of the basic lists. Procurement and distribution of these additional materials would be completed by March 1989 (Annex 3.1). 3.07 To ensure that students and teachers would have access to reference works and other books, the Government proposes under the Project to have adequately equippedlibraries in the schools to be constructed. The DET has prepared the guidelines, agreed to by the Bank, on the categories and numbers of books to be provided to each school. These books would be purchased by the Government and would be supplemented by the schools from the voluntary tuition fees. The program would be initiated in early 1988 (Annex 3.1). With respect to textbooks, the Government proposes to experiment with a deposit scheme in a representative sample of urban and rural schools. The present scheme, under which students in Grades 5-9 are required to return books for recirculation, or reimburse MOE, has serious deficiencies. In practice, only 60% of the books have been recovered and fines have been difficult to collect. The new scheme, which involves taking a deposit when books are issued, would be reviewed with the Bank and, if successful, generalized by September 1988 (Annex 3.1). 3.08 Three Teacher Resource Centers (TRCs) would be established on a pilot basis (in Amman, Kerak, and Irbid) to provide support to teachers in the preparation and effective use of instructional materials. The TRCs would - 15 - operate under the authority of the respective District Education Director. Support to teachers would be provided by school supervisors and audiovisual aids technicians. The centers would be equipped with reference libraries and repair workshops and would serve as a depository of reference works on methodology, professional manuals and audio-visual equipment to be loaned to schools. The proposed Project would provide for the refurbishment of three existing MOE buildings to be converted to the pilot TRCs. It would train nine division heads of the Directorate of Audio-Visual Aids (Annex 3.2) as the DET headquarters team. This team would plan and supervise the development of a new program based on the TRCs and drawing upon the experience of the pilot TRC program. Moreoever, three more DET staff members would be trained in TRC management and one staff in program planning. In addition, nine district audiovisual aids supervisors, who cover the whole country (15 districts), would become trainers for the in-service teacher training scheme (paras. 3.04-C 05) and would prepare ans 4mplement for the production and use of instructional aids. In addition, six audio-visual aid technicians would be locally trained to work full-time as support staff, two in each TRC. During negotiations, the Government provided assurances that the three pilot Teacher Resource Centers would be systematically evaluated starting in September 1990, and proposals for their possible extension to the remaining 19 districts would be reviewed jointly with the Bank by September 1991 (para. 5.01c). The TRCs would start-up in early 1989 (Annex 3.1), by which time the buildings would be adapted and the equipment procured. Improving the Quality of Physical Facilities and Reducing Cost Per Student Place 3.09 School Construction. As part of its effort to improve quality, the Government, in its investment plan in support of the Third Five-Year Plan, has made provisions for replacing one-third of the rented premises, which are unsuitable for efficient teaching and learning (para. 2.13), by constructing school buildings to provide 225,900 student places by 1992/93. The Project would support the construction of 58 compulsory-level schools, representing about one-third of the Government's target, in urban and suburban areas where conditions in rented premises are particularly ill-suited for use as schools (paras. 2.12 and 2.13). These 58 schools would provide a total of 65,400 student places (16,440 males and 48,960 females). Thirty-two schools would be constructed under Phase I. The experience from this phase would be utilized to make the necessary modifications for the remaining 26 schools to be constructed under Phase II starting January 1990; both phases are scheduled for completion by March 1993 (Annex 3.1). Fifty-five of the 58 schools would be large with a capacity of 960 or 1,200 places; the remaining three schools would be small. They would vary in class combinations (Grades 1-6 and Grades 1-9) to allow optimal utilization (Annex 3.3). Accommodation schedules, prepared in consultation with the Bank, would enable more efficient use of teaching staff in comparison with existing schools of similar size. To provide functional classrooms at a lower cost per student place, the Government and the Bank have developed new space and area norms, and new standards and criteria concerning size. These revised area norms and standards would lower the average cost per student place by about 20% by reducing the average gross area per student by about 37% (from 4.50 m2 to - 16 - 2.84 m2). These revised area norms and standards are also lower than the Bank median (3.30 m2) (para. 3.22). During negotiations, the Government provided assurances that designs for all MOE schools to be constr.ucted in the future would conform to the newly-revised nurms and standards tnat are used in designing the 58 compulsory-level schools to be constructed under the proposed Project (para. 5.02d). The Project would also support the rehabilitation to the existing Taj secondary school for girls (para. 3.12), adaptation and conversion of classrooms for use as computer workroom (para. 3.11) and rehabilitation and adaptation of existing administrative buildings for use as teacher resources centers (para. 3.08). Project funds would finance civil works, furniture and equipment for these 58 schools. 3.10 Strengthening School Maintenance. To enable more efficient use of available budgetary and personal resources, the Project would strengthen the school building maintenance system by conducting a comprehensive study to recommend appropriate maintenance policies and planning processes. The study would analyze the existing maintenance budgets, personnel and practices (para. 2.14). It would also review manpower requirements and the effect of salary scales on staff turnover in the mobile maintenance units which handle preventive maintenance. The study would be contracted to a local firm or consultant (Annex 3.1). During negotiations, the Government provided assurances that by July 1989, it would implement the agreed recommendations of the maintenance study to be completed by September 1988, when it would be reviewed jointly with the Bank (para. 5.02e). Project funds would finance local consultants to carry out the study as well as 80 m/m local training to be undertaken by VTC for staff of mobile maintenance units. The training would be implemented according to specifications and recommendations made by the study and would be completed by June 1989 (Annex 3.1). Improving the Relevance of Vocational Training to Labor Market Needs 3.11 Office Technology and Computer Maintenance Training. The existing business program in commercial schools does not offer training in business-related computer applications, although the need for such skills has been identified in regional as well as local labor markets (para. 2.16). As part of Government's effort to make vocational education programs and community college curricula more relevant to the economy's requirements (paras. 2.15-2.18), the Project would introduce such courses on a pilot basis, starting September 1989 (Annex 3.1), in four commercial schools--three girls schools in Amman, Irbid, and Zirka (1,050 places); and one boys school in Amman (350 places). The program would be evaluated after three years, reviewed jointly with the Bank and possibly extended to the remaining 63 commercial schools. Project funds would finance equipment (computers, printers and word processors) and furniture, 48 m/m of overseas fellowships, 24 m/m of local fellowships/training, and 12 m/m of local specialists' services to assist in preparing and implementing the new programs. A related requirement of the rapidly expanding office technology field is an adequate number of skilled technicians in the similarly fast-growing computer maintenance area (para. 2.16). The Project would introduce a basic computer repair and maintenance program in the only two industrial secondary schools at Amman and Zarka (Annex 3.1). It would provide the necessary tools, equipment - 17 - and teaching machines (electrical instruments, electronics training kits, transistor learning systems, logic trainers, and micro-processor trainers) in accordance with lists and specifications prepared by the Directorate of Vocational Education. Overseas fellowships for eight instructors in computer-based office technology for 48 m/m; overseas fellowships for four instructors in computer naintenance for 36 m/mi; and 12 m/m of local specialist services (Annex 3.2). Twenty students would graduate per annum from each school beginning in June 1992. This is expected to meet labor market requirements. 3.12 Vocational Programs for Girls. To support the Government's policy to expand the range of vocational programs offered to girls (para. 2.17), the Project would help to introduce pilot vocational programs in a secondary school for girls in the Taj district of Amman (Annex 3.1). This school, which was originally constructed as a general secondary school would, under the Project, be provided with workshop and laboratory facilities to accommodate vocational programs in assistant nursing (90 places), beauty culture (25 places), dressmaking (25 places), and two specialized commercial programs--office management and finance (160 places). Practical training for assistant nurses would take place in a local hospital. The school would be one of the girls schools identified for the introduction of business-related computer applications into its office management program (para. 3.11). The pilot experience would be applied to an expansion of up to 50 other schools (originally constructed as general secondary schools) in other densely populated urban areas. In addition to financing the civil works for extensions, project funds would finance construction of workshops, equipment and furniture for the new workshops and laboratories, 27 m/m of overseas fellowships for 3 nursing supervisors; 36 m/i of overseas fellowship for 2 dressmaking and 2 beautician instructors to be trained as supervisors. During negotiations, the Government provided assurances that the business-related computer applications and computer maintenance skills programs (para. 3.11) and the pilot vocational programs for women would be evaluated by December 1991 and reviewed jointly with the Bank (para. 5.02f). 3.13 Adaptation of Community College Curricula. The rapid proliferation of public and private community colleges since 1980 (para. 2.18) has not been matched by progressive adaptation of the programs they offer to the economy's requirements (para. 2.18). There are six main programs (teacher training, commercial, engineering, paramedical, social services, and agriculture), and each one is composed of various specializations ranging in number from two (agriculture) to 40 (engineering). These curricula now need thorough review for the following reasons: students do not receive enough practical training; there is an overlap between many courses; course duration needs to be rationalized; and some programs need new specializations to improve their relevance. The Project would support the review of the community college programs as follows: the MOHE would review the curricula, materials and methods of each program specialization and prepare new specifications where change is necessary. In parallel with this review, the Project would establish a student achievement teating and program evaluation system, which would: (a) improve the criteria used in admitting students to courses; (b) set realistic institutional and student performance standards; and - 18 - (c) systematically evaluate programs to enable standards to be maintained and improved. Project funds would finance local consultants to help develop test banks and testing instruments for new curricula. A specialist in curriculum and program design would be provided for 24 staff-months to assist the work of program committees and to train counterpart staff in the Community College Curriculum Division of the MOHE Community College Directorate (CCD). A specialist in testing and evaluation would be provided for 38 m/m to assist the Testing and Examinations Department of the CCD in establishing an evaluation system and to supervise on-the-job training of 12 new staff who would receive 144 m/m of overseas training (Annex 3.2). This specialist would also help MOHE launch a program of local training for community college teachers to write and administer tests. College staff would be trained throughout 1989 and the introduction of new courses completed by September 1991 (Annex 3.1). During negotiations, the Government provided assurances that a final report on community college curricula review would be issued by December 1991 and reviewed jointly with the Bank (para. 5.02g). Strengthening Planning, Management, and the System for Measurement and Evaluation of Education Quality at the Ministries of Education and Higher Education 3.14 Expanding the MOE Management Information Systems. The MOE Management Information System (MIS) does not yet contribute fully to management decision-making because Directorates do not have their own computers to link them to the data base in the MOE's central system (para. 2.19). To provide access to the data base, project funds would provide 12 small computers and related software for the Directorates of Examinations, Personnel, Planning, Projects and School Buildings, and Finance and link them to the MOE's central computer system installed in the Ministry's Computer Center. The Center would develop special software programs to extend the MIS. Training would be provided for three center staff in computer operations and for 16 center staff in systems analysis and programming. The director and Center staff would also study the MIS used in other education systems outside Jordan. Equipment would be procured by June 1989 (Annex 3.1), and staff training would begin in early 1988 and be completed by June 1991 (Annex 3.2). Project funds would finance 34 m/m of overseas fellowships, one m/m of observation visits. 3.15 Strengthening Testing, Measurement and Evaluation Systems. The Project would provide support to the Directorate of Examinations to strengthen the technical capacities of its staff as well as establish the bases for an integrated system to measure and monitor the quality of student achievement and teacher performance and to evaluate education programs and processes and their cost effectiveness (Annex 3.1). The evaluation system to be set up would: (a) establish baseline achievement data for Grades 1-12; (b) supervise, with assistance from the leading institutions, a comparative assessment of the achievement levels of school children in Jordan with those of other comparable countries; (c) help identify learning deficiencies and in turn develop remedial instruction; and (d) help assess the impact on student achievement of different educational inpt'ts such as teacher upgrading, the availability and use of instructional materials, aad improved school facilities. This information would guide future management decisions on how - 19 - to deploy increasingly scarce resources to achieve the greatest impact on quality imorovement. 3.16 Staff development would be carried out through specialist services and local and overseas training. In the evaluation and follow-up area, project funds would finance a foreign specialist in evaluation for six m/m, eight m/m of overseas fellowships, two m/m of study tours and eight staff me;mbers would be trained part-time on local university courses. The foreign specialist in evaluation would be assigned to the GDE to assist on the job training of the eight GDE staff and in designing their training programs which include part-time training on local university courses as well as assignments to evaluation and testing units overseas (Annex 3.2). In the area of testing and measurement, project funds would finance equipment and materials as well as 12 m/m of foreign consultants and 14 m/m of overseas fellowships. The testing/examination specialist would help establish an in-house training program to train 180 district supervisors per annum for three years (540 supervisors). These supervisors, in turn, would train 5,000 teachers, over five years, in test administration in schools. This training would form part of the general in-service teacher training scheme (para. 3.03). 3.17 Strengthening Higher Education Planning. Until now, the growth of higher education and the type of programs offered have responded to social demand rather than to the specific needs of the labor market (para. 2.05). In recognition of its need to strengthen the information base for higher education policy and program planning, the Third Five-Year Plan (1986-90), would undertake studies that would: (a) make higher education planning more relevant to labor market needs and review existing methods of planning and financing higher education; (b) review the employment status of Jordanian graduates qualified in Jordan and abroad, the relevance of their training to their jobs, and the financial returns of investment to such training; (c) evaluate the effectiveness of community college programs and their relevance to community and labor-market needs; (d) provide accurate data on the number, location, type of course/specialization, and source of financing of Jordanian students studying abroad; and (e) identify the number of secondary education graduates likely, for each year of the plan, to gain admission to higher education or to join the labor market in order to review the expansion plans of institutions of higher education and their admission and cost-recovery policies. During negotiations, the Government provided assurances that these studies would be reviewed jointly by the Government and the Bank by no later than December 1990 (para. 5.02h). 3.18 Strengthening Project Implementation Capacity. Until December 1986, Bank-financed projects were implemented by the Projects Implementation Directorate (PID) which had an excellent track record and experienced staff. In the recent reorganization of the MOE, this Directorate was merged with that for School Buildings to form the General Directorate for Projects and School Buildings (GDPSB) (Annex 3.6, Chart 1). A major task of GDPSB would be carrying out the Government's zchool building program. During the Five-Year Development Plan Period (1986-90), the school building program would provide 200,000 places, 65,400 of which would be provided by the Project. To support GDPSB in this task as well as to help enhance technical capacities of staff - 20 - responsible for project coordination and implementation, (par&. 3.31) the Project would provide the GDPSB with: (a) two passenger vehicles for construction site supervision, a crane truck to speed-up heavy equipment handling; and (b) 28 m/m of overseas training for 12 GDPSB staff and on-the-job training programs for another 28. The training would ensure that all GDPSB staff are able to follow common procedures in design, procurement, project programming and cost controls (para. 2.19). Experienced staff of the former Projects Implementation Department would provide this on-the-job training. - 21 - B. Project Cost and Financing Plan Project Cost 3.19 The total project cost is estimated at JD 36.2 million or US$108.3 million equivalent. The breakdown by component is provided in Table 3.1 below. TABLE 3.1: PROJECT COSTS BY COMPONENT NOTE: 1. Total project costs include US$4.1 million for identifiable duties and taxes. 2. Net project costs excluding taxes and duties is US$104.2 million. 3. Subtotals and total figures do not add up due to Costab rounding. - 22 - A summary of project costs by category of expenditure is given in Table 3.2. TABLE 3.2: PROJECT COSTS BY CATEGORY OF EXPENDITURE 3.20 Basis of Cost Estimates. Estimates of school construction costs are based on the recently awarded contracts for comparable facilities under the Sixth Education Project. This cost averages US$275 per square meter (M2). Costs of rehabilitation/extension of existing facilities are based on mission estimates. Furniture costs are based on 102 of the new building construction cost, and equipment costs are derived from master equipment lists prepared for schools financed by the Bank under the Sixth Education Project. Technical Assistance (TA) costs have been estimated on the basis of recent prices for comparable TA in the Sixth Education Project and after consultation with UNDP. The per m/m cost of specialists include housing, relocation expenses, - 23 - salaries, subsistence, office services, fees, overheads and recruitment costs. Base cost estimates reflect prices as projected for October 1987. 3.21 Customs Duties and Taxes. Project costs include an estimated US$4.1 million in indirect taxes on locally procured civil works and goods. Equipment and goods imported directly for use by government ministries are exempt from duties and taxes. 3.22 Costs and Areas Per Student. Area allocations for academic and communal construction shown in Annex 3.4 are appropriate and compatible with the Bank median allocations for such facilities (3.30 m2). Total capital costs per student place for academic and communal facilities are comparable to the costs of similar facilities in Bank-financed projects in other countries. Cost comparisons are shown in Annex 3.4. 3.23 Contingency Allowances. Project costs include a physical contingency of US$7.6 million, corresponding to about 8% of the base cost: 5% of equipment (based on equipment lists used for the Sixth Education Project) and 10% of the cost of other items. Price contingencies between October 1987 and the end of project implementation are estimated at US$10.0 million equivalent, or about 10% of the base cost plus physical contingencies. Total contingencies (US$17.6 million) represent 19.3% of the base cost. Annual rates of price increases have been applied to all categories in US dollar terms at the following annual rates: local, 5% in 1988-94; and foreign, 1% in 1988-90 and 3.5% in 1991-94. 3.24 Foreign Exchange Component. The foreign exchange component is estimated at US$47.1 million (44%) and broken down as follows: (a) new construction and rehabilitation/extensions of existing facilities - 42%; (b) furniture, equipment, materials, books and software - 90%; (c) fellowships - 86%; (d) consultants - 29%; (e) local training - 15%. These percentages were based on mission calculation of the indirect foreign exchange of construction, and on the assumptions that fellowships would be overseas, that 15% of consultants would be foreign and that indirect foreign exchange costs for local training would be 15%. Project Financing 3.25 The proposed Bank loan of US$40.0 million would finance 36.9% of the total project cost and 85% of the foreign exchange co-mponent. The Government would finance the remaining 7% of foreign costs (US$4.6 million) and all local costs (US$61.2 million) including taxes (US$4.1 million). EEC would finance, through a technical grant of US$2.5 million, overseas training and foreign specialists (paras. 3.27 and 5.01). 3.26 The proposed loan would help finance civil works (new construction, site development, rehabilitation/extensions) and provision of furniture, equipment, materials and software. Table 3.3 shows the financing plan by category of expenditure. - 24 - TABLE 3.3: FINANCING PLAN (US$ million) Estimated Categcry - US$ Million Share of Bank of Expenditure Gov't Bank EEC Total Financing (2) Civil Works 38.0 27.0 - 65.0 41.5 Furniture 3.2 2.6 - 5.8 44.8 Equipment. Materials & Software 0.7 8.3 - 9.0 92.2 Books 2.0 - - 2.0 0.0 Technical Assistance 12.1 - 2.3 14.4 O.C Unallocated 9.8 2.1 0.2 12.1 17.4 Total 65. 2.5 108.3 36.9 Recurrent Cost and Implications 3.27 In 1993, when all project components are expected to be completed and the project institutions are fuily operational, they are estimated to generate, in 1986 prices, about JD 0.6 million per annum in incremental recurrent costs. This would translate to an additional 0.8% per annum (in 1986 prices) in the MOE's recurrent budget. These cost estimates include remuneration of additional teaching and non-teaching staff, additional instructional materials, and maintenance of additional equipment and buildings. The additional costs generated by the Project would be more than offset by the savings expected to be realized by the new in-service teacher upgrading scheme and the school construction program. C. Project Implementation Status of Preparation, Implementation, and Technical Assistance 3.28 Status of Preparation. The proposed Project is at an advanced stage of preparation. Preparation of designs and tender documents for school construction has started and would be completed by December 1987; furniture and equipment lists with related technical specifications would be the same as those prepared for compulsory level schools under the Sixth Education Project; and all of the technical assistance packages have been defined and detailed terms of reference have been completed. 3.29 Architectural Design and Engineering Services. Consultants for the preparation and development of designs have been selected in accordance with - 25 - the Bank's Guidelines for the Use of Consultants by the World Bank Borrowers and by the World Bank as Executing Agency, dated August 1981. The consultants would be responsible for site surveys, soil tests and analysis, and all stages of the design/supervision process. Suitable sites for all project institutions have been identified and selected. Currently, 32 of the 58 sites have been acquired and the remaining sites are expected to be acquired by the time of negotiations. The MOE would obtain the necessary clearances from the Department of Antiquities with respect to the sites for 58 compulsory schools to be constructed (para. 4.03). 3.30 Implementation Period and Schedule. The Project, in accordance with the disbursement profile for the country and sector, would be implemented over seven years (1988-94). Project Completion Date would be June 30, 1994 and the Closing Date, December 31, 1994. The proposed project duration would allow for a period of readjustment following major reorganisation of the MOE and, in particular, of the GDPSB (para. 3.15). The TA component would take a full seven years to be completed. The same would apply to the establishment of an integrated testing, measurement and evaluation system which would require a critical minimum time to yield its results. To ensure that the proposed Project meets its key objectives and is implemented in a timely manner, the Government has developed, jointly with the Bank, detailed action plans and identified target dates for completion of major tasks. The Project action plans and implementation schedule are summarized in Annexes 3.1 and 3.5, respectively. 3.31 Implementation Responsibilities. With the exception of adaptation of community college curricula and examinations (para. 3.13) to be implemented by the MOHE, the Project would be implemented by the General Directorate of Projects and School Buildings (GDPSB) (para. 3.18). The Project would provide training to GDPSB staff to support this objective (Annex 3.6, Chart 1). Specific project implementation functions of the GDPSB would include: (a) in the civil works area, selection of consultants and preparation of architects' briefs, review of designs and bid documents, calling for tenders, and follow-up of construction; (b) with regard to procurement of goods, preparation of furniture and equipment lists and related specifications, organization of bidding, supervision of the execution of contracts, certification of payments, inspections, warehousing, distribution to schools, installation, commissioning and settlements of claims; (c) coordinating technical assistance; (d) keeping project accounts; and (e) selection and acquisition of sites and provision of schoo' building maintenance. Contract award for civil works would be decided by the Government Tendering Directorate in the Ministry of Public Works. 3.32 The MOHE component (communicy college curricula and examination reform) would be implemented by the Department of Curricula and Examinations of the Directorate of Community Colleges and Institutes. A steering committee to monitor implementation of the action plans has already been set up. The committee is chaired by the Secretary General of the MOHE and is composed of the directors of the Directorates of Development of Higher Education, Administration and Finance Affairs, and Community Colleges and Institutes; the heads of the Departments of Curricula and Examinations; and the Secretary of - 26 - the Higher Education Council. Liaison with the Bank would be through the Secretary General of the MOHE. The organizational structure of MOHE is given in Annex 3.7. 3.33 Technical Assistance (TA). The in-service teacher training scheme (para. 3.02) would be implemented by the MOE General Directorate of Supervision and Teacher Training which would recruit additional specialist assistance from local community colleges and universities in accordance with their existing practice for in-service training. Local training for evaluation and testing would be undertaken through part-time courses at local universities (para. 3.16). Local technician training for TRCs (para. 3.08) would be provided by the VTC. Specialists and advisors for MOHE curriculum and evaluation working groups and committees (para. 3.13) would be recruited from institutes of higher education and the private sector. To simplify the management of the remaining TA, the MOE and MOHE would obtain beparate, comprehensive TA contracts for foreign specialist services and overseas fellowships for their respective programs. At least three suitably qualified training institutions would be requested to submit proposals, following a short listing of institutions acceptable to the Bank. The consultants would be selected in accordance with principles and procedures acceptable to the Bank on the basis of the "Guidelines for the Use of Consultants by World Bank Borrowers and by the World Bank as Executing Agency". Detailed action plans, an implementation schedule, and terms of reference for TA have been prepared and are available in Annexes 3.1, 3.2 and in the working papers on the Project file (Annex 3.8). 3.34 The TA program has been arranged in two parts. Part A consists of foreign specialists and overseas fellowships for the components related to strengthening the planning, management, and testing and measurement of education quality (paras. 3.14-3.16); improving the quality of education (paras. 3.03-3.09); and improving the relevance of vocational training to labor market needs (paras. 3.11-3.13). Part B consists of specialist services and training provided from local resources associated primarily with teacher training (paras. 3.03-3.05), studies for higher education (para. 3.17), community college curricula review (para. 3.13), and the school maintenance study (para. 3.10). The cost of the total program (Parts A and B) is estimated at US$15.1 million net of contingencies of which US$2.5 million is for foreign specialist services (80 staff-months) and training overseas (460 staff-months). Annex 3.2 provides a summary of Part A (foreign specialists and overseas training) and Part B (local training and local specialist services). Jordan has already displayed a capacity for managing TA effectively (para. 2.21) and has developed an implementation strategy for the proposed TA program (para. 3.33) acceptable to the Bank. The Government has secured a commitment from the EEC to provide grant aid for Part A (foreign specialists and overseas training) of the TA program. Allocations have been made in the Third Five-Year Plan to finance Part B of the TA program. Procurement 3.35 Except as noted in para. 3.36, bids for civil works, furniture and equipment would be invited under international competitive bidding (ICB) - 27 - procedures in accordance with the Bank's "Guidelines for Procurement Under IBRD Loans and IDA Credits" (May 1985). Furniture and equipment bids would be arranged in appropriate packages so that each package can be supplied from a single source for purposes of uniformity and discounting, and it is estimated that they would account for 90b of the total value of furniture and equipment. The remaining 10% would be suitable for procurement procedures other than ICB. The procurement arrangements are summarized in Table 3.4. 3.36 The exceptions to ICB procurement would be as follo*s: (a) Construction of minor extensions and rehabilitation of existing buildings estimated to cost a total of US$0.9 million would be carried out under local competitive bidding advertised locally in accordance with procedures which are acceptable to the Bank. (b) Contracts for furniture equipment and materials, estimated to cost less than US$100,000 equivalent each and totaling US$0.6 million, would not be expected to interest foreign suppliers either because of the low value or the variety of items in each contract; they would be awarded on the basis of competitive bidding and advertised locally. (c) Sundry items not exceeding US$50,000 in each contract and aggregating to a maximum of US$1.1 million equivalent could be purchased on the basis of a minimum of three quotations in accordance with the local procurement procedures which are acceptable to the Bank. (d) Acquisition of books (estimated to cost less than US$2.4 million in aggregate) would be done through negotiations with publishers. - 28 - TABLE 3.4: AMOUNTS AND METHODS OF PROCUREMENT-' (US$ million) Procurement Methods Procurement Elements IOB LCB Other Total Civil Works 71.1 0.9 0.0 72.0 (27.4) (0.4) (0.0) (27.8) Furniture 5.8 0.6 0.0 6.4 (2.2) (0.2) (0.0) (2.4) Equipment and Materials 9.6 0.1 1.1 10.8 (8.7) (0.1) (1.0) (9.8) Books 0.0 0.0 2.4 2.4 (0.0) (0.0) (0.0) (0.0) Technical Assistance 0.0 0.0 16.7 16.7 (0.0) (0.0) L
Группа Всемирного банка · Staff Appraisal Report
Jordan - Seventh Education Project
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