Philippines - Fishery Training Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 8788 PROJECT PERFORMANCE AUDIT REPORT PHILIPPINES FISHERY TRAINING PROJECT (LOAN 1786-PH) JUNE 25, 1990 Operations Evaluation Department TEds document has a rstlcted disttibutlon ad may be ued by welspIe oy In d{e pelmam of their ocfa dudies& Its conts may not dterise be disciofed Qt Word Bak aut_odia  FISCAL YEAR January 1 - December 31 COUNTRY EXCHANGE RATES Name of currency (abbreviation) Pesos (P) Exchange rates: Appraisal vear average (1979) US$1.00 - Pesos 7.40 Intervening years average: 1980 7.51 1981 7.92 1982 8.57 1983 10.65 1984 16.69 1985 18.60 1986 20.23 Closing year average (1987) 20.48 L Last year of disbursements average (1988) 20.85 Weighted Average based on disbursed percentages 17.49  FOR O yFICAL U OLY THE WORLD BANK Washtngtonm D.C. 20433 USA. Olic. of DvctcwGawrui Opwatan EvAtaw June 25, 1990 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Project Performance Audit Report: Philippines - Fishery Training Proiect (Loan 1786-PH) Attached, for information, is a copy of a report entitled "Project Performance Audit Report: Philippines - Fishery Training Project (Loan 1786-PH)" prepared by the Operations Evaluation Department. t; Attacbment This document has a rsticted distribution and may be used by rcipents ony i the gperf_aa of their offiial dutes Its contents may not othewise be dbclosd without Word Bank authoation.  FOR CFICIAL USE ONLY LIST OF ABBREVIATIONS BPAR - Bureau of Fisheries and Aquatic Resources BSF - Bachelor of Science in Fisheries CONFIDES - Committee on Fisheries Irntegrated Development Education Study DBM - Department of Budget and Management DFT - Diploma in Fishery Technology RDPITAF - Educational Development Projects Implementing Task Force FAO - Food and Agriculture Organization FED - Fishery Education Division FIDC - Fishery Industry Development Council GOP - Government of the Philippines IBRD - International Bank for Reconstruction and Development ICB - International competitive bidding IDPF - Integrated Fisheries Development Plan MOA - Memorandum of Agreement MECS/DECS - Ministry of Education, Culture and Sports (now the Department of Education, Culture and Sports, DECS) HNR/DENR - Ministry of Natural Resources (now the Department of Environment and Natural Resources, DENR) MSF - Master of Science in Fisheries NEDA - National Economic Development Authority OED - Operations Evaluation Department OBM - Office of Budget and Management (now the Department of Budget and Management, DBM) OJT - On-the-Job Training PCR - Project Completion Report PCSPE - Presidential Commission to Survey Philippine Education PET - Project Executive Team PI - Project Institution (in this report it refers to RIFTs, RFTCs & UPV-CF) PFDA - Philippine Fisheries Development Authority PMS - Project management support PPAR - Project Performance Audit Report PSC - Project Standing Committee RDP - Regional Development Program RFTC - Regional Fishermen Training Center (originally Regional Centers for Fishermen Training) RFTDC - Regional Fishery Training Development Committee RIFT - Regional Institute of Fishery Technology RPDO - Research and Project Development Office RRC - Research Review Committee SAR - Staff Appraisal Report SKAYDEC - Southeast Asian Fisheries Development Council SY - School year TPAE - Technical Panel for Agricultural Education UP - University of the Philippines UP-CF - University of the Philippines-College of Fisheries UPLB - University of the Philippines - Los Banos UPV-CF - University of the Philippines in the Vieayas-College of Fisheries 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.  PROJECT PERFORMANCE AUDIT REPORT PHILIPPINES FISHERY TRAINING PROJECT (LOAN 1786-PHi) TABLE OF CONTENTS PaUe No. Preface ....................... ..... ...... ...a....*...** .... i Basic Data ................................................... iil Evaluation Summary ..............***..**....**** ............ vi PROJECT PERFORMANCE AUDIT REPORT I# PROJECT BACKGROUND ..... 1.............. ......... . 1 A. The Fisheries Sector in the 1970s .........1........ 1 B. Bank Assistance to Philippine Education ........... 3 II. PROJECT GENERATION . ............. ..... ................ 4 A. Project Preparation ......*.***,........ .*.******** 4 B. Project Objectives, Components and Implementation Design ... ........ .. ... .......... . 7 III* PROJECT IPLEMENTATION ..9. .............. ... .. .. . 9 A. Implementation Overview ..... ...................... 9 B. Selected Implementation Issues ...........*...... ... 10 Project Management ..... .... ..... ............... . 10 Procurement ....... ..... *..O.* 11 Civil Works and Equipment at UPV-CF ............. 12 IV. PROJECT OUTCOMES ...... ...... 13 A. Development of the Fisheries Sector, 1980-1990 .... 13 Resources and Production ........................ 13 Emaployment ................................................. 14 Public Administration and Policies............... 15 B. Operating Outcomes for Project Institutions ........ 16 Staff Development................................ 16 Program Development and Regulation .............. 17 Enrollments and Output from Project Insituion ...................................18  Table of Contents (contd.) C. Development of a Fisheries Training System ........ 20 Internal Cohesion and Self-Regulation ........... 20 Monitoring and Evaluation ....................... 21 D. Fisheries Research Capacity Development ........... 22 E. Improving the Lives of Municipal Fishermen......... 23 IV. FINDINGS AND LESSONS ......... ................... 24 ANNEXES - PPAR 1. The Philippines Fisheries Sector in th- 970s*......... 27 2. Total Project Cost by Institution, by Component and Source of Funds ............. .......... 31 PROJECT COMPLETION REPORT Coualeti.on Report Prepared by the Govermeut ...... ........... 35 Summary and Highlights ....................................... 35 I* INTRODUCTION ................ ................................ 45 II. PROJECT BACKGROUND .......... 9 9.............. 45 III. PROJECT IMLEMENTATION ................................. 59 IV. PROJECT OUTCOMES ......#.. ........................9...... 65 V. PROJECT COSTS, FINANCING ANL DISBURSEMENTS 9............9 71 VI. CONCLUSIONS AND RECOMMENDATIONS ........................ 75 Observations sad Lessons Learned by the Bank .................. 79 ANNEXES -PC 1. Technical Assistance by Program and Institution ....... 81 2. UPV-CP Technical Assistance, Appraisal vs. Actual 99999 83 3. RIFTs Technical Assistance, Appraisal vs. Actual ...... 84 4. RFTCs Technical Assistance, Appraisal vs. Actual 999999 85 5. Construction Cost by Project Institution ... ...... 86 6. Professional Services Costs by Project Institution 9999 88 7. Civil Works Costs by Project Institution .............. 89 8. Civil Works Schedule, Start of Construction and Completion Targets, Appraisal vs. Actual ............ 90 9. Actual Value of Equipment Contracts Awarded and Deliveries Made ................... 91 10. Actual Value of Furniture Contracts Awarded and Deliveries Made ......999.9999999999 9...... 92  Table of Contents (contd.) Annexes (ccntd.) 11. UPV-CF Faculty Profile ....... ......................... 93 12. Approximate Gross Area Constructed, by Institution .... 94 13. RIFTs - Number of Applicants vs. Admitted as First Year Students, SY 1983-84 to SY 1987-88 ....... 95 14. RIFTs - Enrollment by Year Level, SY 1983-84 to SY 1987-88, Appraisal vs. Actual .................... 96 15. RIFTs - Enrollment by Area of Specialization, SY 1983-84 to SY 1985-86, Appraisal vs. Actual ...... 97 16. RIFTs - Drop-Out and Graduation Rates, SY 1983-84 to 1987-88 ........... .............................. 99 17. RIFTs - Graduates by Areas of Specialization, SY 1985-86 to SY 1987-88 ............................ 100 18. RFTCs - Trainees and Training Programs Conducted, 1982 to June 1988 ..... .............................. 101 19. RFTCs - Trainees by Areas of Specialization, 1982 to June 1988 ...........*..**........****.****..... 102 20. Total Project Costs, by Component, Category of Expenditure and Source of Funds, Appraisal vs. Actual ...... .. ............ ... .. ....... 103 21. Disbursement of Loan Funds, Appraisal vs. Actual ...... 105 22. Disbursement of Funds by Category of Expenditure, Appraisal vs Actual .... ............... .............. 106 APPENDICES 1. Highlights of the Small Scale Fishermen, Fish Farmers, Fish Processors and Fish Community Baseline Study, and Fisheries Manpower Supply and Demand Study .................... 107 2. Compliance vith Loan Covenants ..... ................... 113 COMMENTS FROM THE BOROWER Attachment I: Comments on the PCR - EDPITAF ................ 115 Attachment IIs Comments on the PCR - REDA ................... 117 Attacbment III: Comments on the PPAR - College of Fisheries .. 120 Attachment IV: Comments on the PPAR - EDPITAF ....0........... 123  - i - PROJECT PERFORMANCE AUDIT REPORT PHILIPPINES FISHERY TRAINING PROJECT (LQAN 1786-PH) PREFACE This is a Project Performance Audit Report (PPAR) for the Fishery Training Project in the Philippines, for which Bank Loan 1786-PH, provided US$38.00 million to establish a comprehensive fishery training system. The Loan was approved on December 18, 1979 and became effective on May 19, 1980. Over the course of project implementation, a total of US$8.4 million Was cancelled. The Closing Date of June 6, 1985 was extended to, and ultimately closed on December 31, 1987. Final disbursement was made on August 20, 1988. Cofinancing in the amount of US$7.6 million was provided by the Government of Norway. The report consists of the Project Performance Audit Report, prepared by the Operations Evaluation Department (OED) and the Project Completion Report (PCR). The PCR consists of a Completion Report, prepared primarily by the Borrower in compliance with the provisions of SectLon 3.14 (c) of the Loan Agreement and a section on Observations and Lessons Learned by the Bank, prepared by the Population and Human Resources Operations Unit of the Asia II Country Department. The PPAR is based on the attached PCR, the Staff Appraisal Report, loan documents, the transcript of the Executive Director's meeting at which the project was considered, a study of project files, and on discussions with Bank staff familiar with the project. An OED mission visited the Philippines in July/August 1989, and discussed the effectiveness of the Bank's assistance with officials of EDPITAP, NEDA, the Departments of Education, Culture and Sports, Agriculture, and Natural Resources, as well as with staff of project institutions. Their kind cooperation and valuable assistance in the preparation of this report is gratefully acknowledged. The PCR provides a satisfactory assessment of the project experi- ence, the performance of the executing agencies and the performance of the Bank. The executing agency, EDPITAP, compiled many useful statistics on project institutions, which appear as annexes to the PCR. The Audit validated most of the findings in the PCR. In fact, the high quality o