Ecuador - Education Project

I r X s n j rx r R E S T RESTRICTED RETUIRN TO 11L , tq rt Report No. TO-624a REPORTS DESK WITHIN 0 E WEEFK This report was prepared for use within the Bank and its affiliated organizations. They do not accept responsibility for its accuracy or completeness. The report may not be published nor may it be quoted as representing their views. INTERNATIONAL BANK FOR RECONSTRUCTION AND DEVELOPMENT INTERNATIONAL DEVELOPMENT ASSOCIATION APPRAISAL OF AN EDUCATION PROJECT IN ECUADOR June 4, 1968 Projects Department  CURRENCY EQUIVALENTS US $1.00 = sucres 18.18 Sucres 100 = US $5. 5 Sucres 1 million = US $55, 000 MEASURES I m 2 1.196 sq yd = 10. 764 sq ft 1km 2 0.38 sq. miles 1 hectare = 2. 47 acres  ECUADOR APPRAISAL OF A}! EDUCATIOUI PROJECT TABLE OF CONTENTS Paragraph Nunmber BASIC DATA SUNNARY i 1. INTRODUCTION 1.01 The Request 1.01 Socio-Economic Features 1.04 2. EDUCATION AND TRAINING 2.01 Structure and Administration of Education 2.01 Primary Education 2.05 Second Level Education 2.07 Youth and Adult Education 2.14 Higher Education 2.18 Secondary Education Development Targets 2.20 School Building 2.25 3. EDUCATION FDIANCE 3.01 Present Expenditures 3.01 Financial Frojections 3.08 4. MANPWER AND EDUCATION 4.01 Relating the Education and Training System to the Economic Needs 4.01 The Need for the Project 4.08 5. THE PROJECT 5.01 General 5.01 Elements of the Project 5.09 Cost of the Project 5.23 Implementation 5.2 9 Disbursements 5.33 6. CONCLUSIONS AND RECOM4ENDATIONS 6.01 This report is based on the findings of a mission to Ecuador in October, 1967 consisting of Messrs. C. L. Germanacos, A. MHacris and F. Lethem of the Bank, and Messrs. K. Andersen (Unesco) and R. Eyles, consultant.  AISEXES kID CHARTS Annex 1: Distribution of labor Force, by Selected Occupation, by Educational Level, 1962 Annex 2: Growth of the Educational System Annex 3: Enrollments, by Grade, by Controlling Authority, 1965-1966 Annex 4: Teachers, by Qualification, 1964-1965 Annex 5: Enrollments and Graduates in University Education, 1964-1965 Annex 6: Proposed Enrollment Targets Secondary Education Annex 7: Projected Recurrent Expenditure on Education Annex 8: Manpower Demand and Supply Annex 9: Projected Flow of Trained Teachers into the Primary Schools Annex 10: Project Schools - Total Enrollment and Accommodation annex 11: Analysis of Capital Expenditures Annex 12: Schedules of Accommodation Annex 13: Enrollment Structure and Graduates of Project Schools, 1975 Annex 14: Teacher Requirements of Project Schools, by discipline Annex 15: Analysis of Costs and Estimated Disbursement Chart 1: The Re-Structured Formal Educational System Chart 2: Administration of Education, 1967 Chart 3: Educational Pyramid, 1965-1966 Chart [: Employment Projections, 1975 Chart 5: Central Government Recurrent Expenditure on Education Chart 6: Schedule of Project Phasing and Estimated Disbursement Rate lap: Location of Project Schools  ECUADOR BASIC DA'TA - Year 1966 A. General Area: 270,670 Kmm2 Total Population: 5.4 million Density: 20.0 per/Km Urban Population: 36% of total population Gross Domestic Product: Sucres 23.1 bi.llion Distribution of GDP, by branch: Agriculture 35) Commerce 1J. M4anufacturing 17, Other 37% Anual average real rate of growth of GDP (1961-1965): 4.9 GDPper capita: US @235 Central Government current receipts as % of GDP? ..3,; Total public sector current receipts as % of GDP : 21.5 O B. Education and Manpower liales Females Total Population aged 6-14 (in 000's) (1965) 1305 Labor force (in OOO's) (1965) 1327 323 1650 Literacy rate (1962) 72% 63% 68% Primary school enrollment as a proportion of 6-12 age group 84% 76% 80% Secondary school enrollment as a proportion of 13-18 age group 19 16% 18%  BASIC DATA - Year 1966 (continued) Annual average rate of population groAth 3.4% Annual average rate of labor force growth 3.2% Percentage of GDP spent on education (total expenditure) 3.2% Education expenditure per capita US $7.60 Percentage of Central Government current revenues spent 23.0% on education Distribution of Recurrent Student Expenditure Distribution Level of Education Enrollment On Education of Labor Force Primary Education 87.0% 5s% 18% Secondary Education 65' 29% 5% Higher Education 1.5, 13% 1%  ECUADOR APPRAISAL OF AN EDIJCATION PROJECT SUNMARY The Government of Ecuador has requested International Development Association financial assistance for an education project. An appraisal mission visited Ecuador in October, 1967. ii. The proposed project is the priority program of a comprehensive education development plan which aims at improving and expanding the system and relating its output to the projected needs of the economy, with particular reference to the source of middle-level manpower - the second cycle of secon- dary education. iii. To economize on scarce resources, technical, agricultural and teacher training schools are to become second-cycle only and be concentrated in a small number of well-equipped schools including the project schools. iv. This consolidation program also incliues the conversion and moderniza- tion of existing secondary schools. These and newly constructed schools would conform to the re-organization requirements and permit introduction of recent- ly developed modern curricula in which practical subjects and the sciences have been emphasized. v. The proposed project is designed to promote achievement of these planned objectives. It comprises construction and equipment of 28 secondary schools, a technical assistance component to assure efficient operation of the project schools, and establishment of a special unit to supervise execution of the project. Construction consists of: (a) extensions to four agricultural schools; (b) one new technical school and extensions to three others; (c) four new primary teacher-training schools and extensions to one existing school; (d) eight new and extensions to one first cycle schoolss and three new and extensions to three schools offering both first and second cycle in general secondary education. vi. Total enrollments in the project schools would be 19,600, an addition of 13,100 over present enrollments in the existing project schools. Total annual output would be 5,600. Annual output of over 2,000 in the 13 agri- cultural, technical and teacher training schools would compare with the 1,600 from 76 such schools now operating. The proposed project thus would provide 64%s 53% and 50% of the estimated required total output in 1975 from agri- cultural, technical and teacher training schools respectively, and about 7% of the projected first and second cycle general secondary school output. vii. Teacher-training in-service and pre-service programs have been prepared and it is essential that these be implemented if the teacher supply for the project schools and for the rest of the planned improvement of secondary education is to be assured. viii. Technical assistance will be required to assist in the conduct of these programs and to give on-the-job training to directors and teachers of the project schools.  - ii - ix. The supply of qualified entrants into the project schools is assured, as are job opportunities for those graduates who do not proceed to further studies. Xe The project schools are suitably located; 21 of 28 sites have already been selected and acquired and are satisfactory. Schedules of acconmodation and equipment are economical and consistent with functional needs. Estimated costs of constructions equipment and furniture are reasonable. Contract awards and procurement would conform to international competitive bidding procedures. xi. A project unit and employment of private architects will be necessary for implementation of the project. There is no shortage of competent local building contractors and adequate building skills are available. xii. The Government is able to meet its share of the capital cost of the proposed project and the consequential recurrent expenditures. However, the Government's capacity to meet the foreseeable expansion in the education system as a whole is doubtful if secondary school enrollment is not strictly regulated. xiii. The estimated cost of the project is US $10.2 million, of which 38% is for construction of teaching accommodation, 5% for dormitories, 1% for staff housing, 28% for furniture and equipment, 5% for site development, 5% for project unit costs and professional fees, 3% for technical assistance and 15% for contingencies. The foreign exchange component is estimated at $4.5 million or 44% of the estimated total cost of the project. xiv. The project is considered suitable for a credit of $5.1 million or 50% of the total cost for a period of 50 years including a grace period of 10 years. The disbursement period would be four years; construction should be completed by the middle of 1972.  APPRAISAL OF AN EDUCATION PROJECT IN ECUADOR 1. INTRODUCTION The Request 1.01 In October, 1966, a Unesco project identification mission cooperated with the Ecuadorian authorities in establishing priority educational needs. In July-August, 1967, a Unesco project preparation mission assisted Ecuador in the elaboration of a request to IDA for assistance to expand and improve secondary education facilities. The request was submitted in August, 1967 and an appraisal mission composed of Dbssrs. C. L. Germanacos (general educator), A. Nacris (agricultural education), F. Lethem (economist), K. Andersen (Unesco, architect) and R. Eyles (consultant, technical education) visited Ecuador in October, 1967. 1.02 The proposed project is part of a ten-year educational development plan initiated in 1964 which seeks to modernize the education and training system, bringing it nearer to the economic needs of the country, particularly in regard to technical, agricultural and teacher education, and to effect economies by redeployment of resources and consolidation of facilities. 1.03 The proposed project, which underwent minor modifications during appraisal, consists of: (i) extensions to and equipment of four agricultural secondary schools; (ii) construction and equipment of a new technical secondary school, and equipment of and extensions to three existing technical secondary schools; (iii) construction and equipment of four primary teacher-training schools and extensions to and equipment of one other; (iv) construction and equipment of (a) eight new and extensions to one first cycle general secondary schools, and (b) three new and three existing schools offering both first and second cycle general secondary education; (v) technical assistance of 12 man-years to provide specialists in teacher-training and project school administration; and (vi) establishment of a project unit to supervise execution of the project. The possible enrollment of the 28 schools would be 19,600 of which some 13,100 would be additional places. The total estimated cost is US $10.2 million equivalent. Salient Socio-Economic Features 1.04 Population: Ecuador's population, estimated at 5.4 million in 1966, is expanding at a rate of 3.4% per annum, leading to heavy pressure on the school system (para. 2.20). Relatively more favorable economic and social, including educational, opportunities in Quito and Guayaquil, the major cities  - 2 - in the Sierra and the Costa Regions respectively, attract migration fram the rural areas where population has been growing at only 2.2% per annum. The educational plan makes allowance for these migratory trends, but also aims at decelerating the movement by providing better educational opportunities in canton and parish centers. 1.05 Labor Force: Some 55% of the labor force, estimated at 1.6 million in 1965, was employed in agriculture, 14% in small industry and handicrafts and 13% in services. About 30% of the total labor force is illiterate. As in many developing countries, the education sector is one of the major employers of manpower with secondary and university level training (Annex 1). The average female participation rate of 20 percent in the labor force is low; it is expected to rise to 40% by 1975 for school leaving girls. 1.06 Economic Situation: Between 1961 and 1965 the average gross domestic product growth rate was 4.9% per annum, largely as a result of the growth of agricultural exports (banana, coffee, cocoa). Agriculture alone in 1966 accounted for 35% of GDP and more than 90% of the countryts foreign exchange earrnings. The manufacturing industry is small both as an employer and as a contributor to GDP and has failed to absorb manpower at a rate matching the growth of the urban labor force. lmployers, aware of the need to increase productivity, are relying increasingly on better qualified workers and trained technicians as they become available to the labor market. 1.07 Development Plans: The ten year plan for social and economic development (1964-1973) assumed an average annual GDP growth rate of more than 6% but this has been revised downward to 5.5% as a result of deteriorating export prospects. In view of the performance of the economty until 1965 (para. 1.06), for the purpose of projecting manpower needs in this report GDP has been assumed to grow at an average rate of 4.9% per annum from its 1962 level, and productivity per man at 2.1% per annum. This would result in a total employment of some 2.1 million by 1975 against a total labor force of 2.2 million (Chart 4), thus leaving unemployment at 5% or about its 1962 level. 2. EDUCATION AND TRAINING The Structure and Administration of Education 2.01 The education system as re-structured by the Education Development Plan, 1964-1973, provides for a six-year obligatory primary course followed by a three-year first or basic cycle secondary school course (Chart 1). The latter is terminal in itself, but selected students may progress into a second or diversified cycle of three years where, according to their aptitude and interest, they are channelled into general secondary, teacher-training, technical industrial, commercial, or agricultural studies. The general secondary schools will emphasize courses with a mathematics-science content or a social studies content. All second cycle courses lead to the Bachillerato award, the graduation certificate of full secondary education. Entrance to the autonomous universities is controlled by faculty entrance examinations. 2.02 The Ilinistry of Education, municipalities and private authorities administer their respective sectors of the system at primary and secondary  - 3 - level. The ultimate authority lies with the Minister of Education who formulates policy, prescribes educational legislation and regulates in particular curricula, syllabi, diploma awards and certification of teachers. This control is highly centralized, but government policy is sometimes negated by misdirected initiative assumed by municipal and private authorities and even by some directors of public schools. A high-quality inspectorate could help improve liaison between the schools and the central authority. It is planned to up-grade the present large supervisory body, but more field visits are required if it is to work effectively. 2.03 The various departments of the Ministry of Education are directed by a sub-secretary, the administrative head (Chart 2). The professional services, headed by a director-general, deal alsq with administrative matters so that their technical skills are inadequately utilized. The Planning Department of the ministry works closely with thejcentral Planning Board. Preparation of the proposed project has brought about some coruwnication betwTeen the Planning Department and the Schools' Cpnstruction Department and other rLinistry departments. 2.04 The Minister of Agriculture administers a nimber of public agricultural secondary schools through a department of agricultural education. Other public and private agricultural secondary schools fall within the jurisdiction of the Ministry of Education. Primary Education 2.05 In 1965-1966 enrollment in some 6,700 primary schools with 21,400 teachers was 800X500, equivalent to 80 percent of the 6-12 years age group, but over-age students numbered 90,000 (Chart 3 and Annexes 2 and 3). Private schools, catered for 18/o of the enrollment, public schools for 70S and mmnici- pal for 12o. The teacher-pupil ratio was 1:38 but less than 56, of the 'teaching force held teaching diplomas (Annex 45. 2.06 The 1974 enrollment target of 1,274,000, equivalent to 92 percent of the 6-12 years age-group is attainable. Recently introduced curricular and structural reforms should improve the flow of students through the system and reduce the present 'drop-out' rate of 78 percent. This improvement would be stimulated further by better-qualified teachers. Second Level Education 2.07 Second level enrollments have trebled in the last decade (Annex 2). In 1965-1966 the enrollment of 118,40O in all types of secondary schools was equivalent to 18 percent of the 13-18 years age-group. Over 52;< of the students attend public schools (Annex 3). Enrollments in the second cycle were 55% in general secondary, 16% in primary teacher-training, 23% in commercial education and only 6% in other types of technical education. 2.08 Rising enrollments have not been matched by the provision of adequate facilities. Many schools are small, uneconomic units with particularly small numbers in the second cycle. The bigger schools are overcrowded. Few schools have satisfactory laboratory or workshop facilities, or are adequately supplied with teaching materials. Mt1aintenance is neglected.  - 4 - 2.09 The teaching force of 8,500 is almost entirely a part-time force (Annex 4) including university students and practising layers, doctors, dentists and engineers. Most teachers work in two or more schools. Only 18 percent held some recognized secondary school teacher qualification. About a half of the remainder are adequately equipped academically for secondary school teaching but lack specific professional training. 2.10 These defects result in limited and low quality output. Particularly handicapped are the vocational type schools where the scarce resources of skilled teachers, materials and equipment are dispersed over a large number of small uneconomic units -- 22 technical industrial, some 170 commercial, 16 agricultural, and 38 teacher-training schools. The resources are further fragmented by the fact that these schools still accept students into the first cycle; these students in fact use up most of the resources (Annex 3); in addition, the drop-out rate is especially high in such schools in conse- quence of the many misfits resulting from too early an entry of students into vocational schools before aptitudes can be ascertained. 2.11 In all types of secondary education, introduction of the recently developed curricula has been delayed because the facilities have been lacking. The curricula in the general secondary schools are highly theoretical; the teacher-training schools under-estimate the importance of educating as well as training the prospective teacher, and the vocational schools lack clear objectives. In these circumstances teaching techniques are traditional also, with active student participation the exception. 2.12 However, what improvements are possible are witnessed in the better- endowed schools where skilled teachers have been able to iltroduce new and purposeful curricula. Prerequisites to improvement of the quality of secondary education of all types are the provision of relevant facilities and qualified teachers. 2.13 Ministry of Agriculture Schools: In addition to the six agricultural secondary schools administered by the Ministry of Education, the Ministry of Agriculture operates nine such schools. Three offer full secondary courses (grades 7-12), three give 3-year courses (grades 7-9), and three practical schools train farmers and low-level agricultural technicians through a two- year program of practical instruction. Enrollments in all were 800 in 1967; the full secondary schools graduated 50. A forestry training center trains sub-professional staff and provides special courses for agriculturists employed in the forestry services. Youth and Adult Education 2.14 A promising feature of the education system is the opportunity given to working youths who have dropped out of the system to continue and complete their studies in evening schools. Some 35 evening general secondary and 19 commercial and technical schools operate in day school buildings; enrollments were 12,000 with 800 graduates in 1966. 2.15 The Ministry of Social Service and Labor administers a vocational training school at second cycle level,sponsored and staffed by the Federal Republic of Germany. This well-equipped school with 95 students is setting high standards of craftsmanship; the graduates are in immediate demand by  - 5 - industry. Another center, with an enrollment of 120, administered by the tlinistry of Defence, provides intensive one-year courses in general mechanics and auto-mechanics. The school aims at meeting military needs and at helping soldiers about to be discharged to prepare for civilian life. This school also sets high standards, and its output is in demand. 2.16 Since 1960 the Ministry of Education assisted by US AID has conducted short courses for 13,300 workers in industry. This pioneer work will be of great assistance to the Servicio Ecuatoriano de Capacitacion Profesional (SECAP), a semi-autonomous organization created in 1966 to plnn, co-ordinate and implement training programs for workers, supervisors, artisans, and smaU businessmen. Utilization of appropriate facilities, existing and proposed, in technical and other schools is an integral part of the SECAP plans. 2.17 A widely supported adult literacy program is receiving UNDP aid; literacy skills are taught in conjunction with acquisition of elementary work skills. New practical facilities in the reformed first cycle secondary schools will prove invaluable to adequate implementation and extension of the literacy program. Higher Education 2.18 Enrollments in the seven universities, two polytechnics and five other establishments of higher education have increased rapidly in the last decade (Annexes 2 and 5). Over half of the students are enrolled in scientific and technical disciplines. The faculties of education have more than doubled their enrollments in the last 5 years. Output of these faculties has increased from 86 in 1962 to over 200 in 1966, with a possibility of 400 graduates in 1970. Furthermore, there has been a marked increase in the num- bers of students preparing for mathematics and science teaching. 2.19 Agricultural education at the higher level is offered by five agricultural and veterinary faculties (Annex 5). Assistance was obtained from UNDP and the Inter-American Development Bank for strengthening the agricultural faculties of Quito and Guayaquil, but there is no provision for agricultural teacher-training in an of the faculties. Some teachers have gone abroad for courses of a speciaized nature but not in agric urtura