Document of

Tne World Bank

FOR OFFICMIL USE ONLY

FIlJE QODPY

Report No. 5356

PROJECT COMPLETION REPORT

KINGDOM OF LESOTHO

SECOND EDUCATION PROJECT

rut r it_g, (CREDIT 748-LSO)Z) Z IC

i - . s o cnmI, (n O jZ mc

mII ~z

December 1i, 1984

Education and Manpower Development DivisionEastern Africa Regional Office

This docmeot his a restricted distribuon ad may be used by recipievts only in the perforumace oftheir official duties. Its contents may not otherwise be disclosed without World Bank authorization.

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FOR OMCIAL USE ONLY

GLOSSARY

COSC Cambridge Overseas School Certificate

CTI Commercial Training Institute

DANIDA Danish International Development Agency

GOL Government of Lesotho

JC General Secondary Junior Certificate

LAC Lesotho Agricultural College

LDTC Lesotho Distance Teaching Center

LIPA Lesotho Institute of Public Administration

LTI Lerotholi Technical Institute

LTS Leloaleng Trade School

MOE Ministry of Education, Sports and Culture

MOW Ministry of Works

NCDC National Curriculum Development Center

NTTC National Teacher Training College

NUL National Urii'ersity of Lesotho

RSA Republic of South Africa

T.A. Technical Assistance

TSRP Training for Self-Reliance Project

LTS Leribe Technical School

First Education Project (Credit No. 479-LSO)Second Education Project (Credit No. 748-LSO)Third Education Project (Credit No. 1148-LSO)

This document has a restricted distribution and may be used by recipients only in the perfornance of IItheir official duties. Its contents may not otherwise be disclosed without World Bank authorization.

LESOTHO - SECOND EDUCATION PROJECT

CREDIT 748-LSO

PROJECT COMPLETION REPORT

TABLE OF CONTENTS

Page No.

PREFACE (i)

KEY PROJECT DATA ................................... (ii)

HIGHLIGHTS o.e....e... , ,.. (v)

Is SUMMARY AND RECOMMENDATIONS . *........ .................... 1

II. INTRODUCTION ................... Os ...... C ........... 5

III. PROJECT BACKGROUND .................... e................... 6

Socio-Economic Setting. ...................... . 6The Education Sector ................ 7Project Identification ...... ............................. 8Project Objectives .... ................................... 8Project Content ...................................... 9Modifications to the Project ............... J

IV. PROJECT IMPLEMENTATION .- ............... 10

Credit Effectiveness .... 10Project Administration . 10Physical Implementation ...... .. 11Furniture and Equipment .... .14

Technical Assistance ...... 16Audit Reports ....... 16Pre±w.restment Studies 17Retroactive Financing .......... 17Covenants ............ ...... ....... ........... 17Bank Group Performance ................................... 18

V. PROJECT COST AND FINANCING ............... 19

Capital Costs ........... 19............19Areas and Costs 21Disbursements ....... 22

Page No.

VI. PROJECT OPER TING OUTCOME .... .......................... 22

The National Curriculum Development Center ............... 22Expansion of Technical Education Facilities .............. 23Trade Testing .......................................* 25Improvement of Secondary Education ....................... 25Assistance to Teacher Training ........................... 29Evaluation ....... ................................ ...... 29Non-Formal Education Program ............................. 30Female Participation u........... .0 ...... 30

ANNEXES:

Annex 1 - Cost of Physical Facilities - Civil WcrksAnnex 2 - Cost of Physical Facilities - Furniture and EquipmentAnnex 3 - Implementation ScheduleAnnex 4 - Compliance with Credit ConditionsAnnex 5 - Key Indicators

CHARTS

Chart 1 - Ministry of Education Organization Chart, 1983

Chart 2 - Education Pyramid, 1982

Chart 3 - Education System 1983

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LESOTHO

SECOND EDUCATION PROJECT (CREDIT 748-LSO)

PROJECT COMPLETION REPORT

PREFACE

This project completion report reviews the implementation of theSecond Education Project in Lesotho, which was signed on November 30, 1977for US$7.5 million. The Credit was fully disbursed in April 1982 and theproject was closed December 31, 1982.

This report was prepared by Bank group staff following a missionto Lesotho in March 1983. Additional data were collected during a prepara-tion mission for a proposed Fourth Education Project in June 1983.

The valuable assistance provided by the Government, in particularby the Project Implementation Unit, and 1by the evaluation consultant, interalia, during the preparation of this repcrt is gratefully acknowledged.

The project has not-been audited by the Operations EvaluationDepartment. Copies of the project completion report were sent to theGovernment for comment in September 1984. No comments have been received.

(ii)

PROJECT COMPLETION REPORT

LESOTHO - SECOND EDUCATION PROJECT

CREDIT 748-WSO

Key Project Data

AppraisalEstiate Actual

Total Project Cost (US$ aillion) 9.3 10.iCost Overrun (Z in US$ terms) - 9ZCredit Amount (US$ million) 7.5 7.5Credit Funds Disbursed (US$ Million) 7.5 7.5Completion of Physical Components 3/31/81 12131/82Number of Months since Credit Signed (11/30/77) 40 61Proportion Completed by Above Date 65% 99ZProportion of Time Overrun (from Credit signing) - 53ZInstitutional Performance - Good

Cumulative Estimated and Actual Disbursements(US$ Million)

1st 2ndSemester Semester

FY78 FY79 FY80 FY81 FY82 FY82

Appraisal Estimate 0.10 1.00 4.30 6.90 7.50 7.50Actual 0.00 0.20 0.96 4.61 5.55 7.50Actual/Estimated (Z) 0 20 22 0.67 74 100

Other Project Data

Original Actual

First Mention in Files 05/26/75 -Initial Project Brief 0524/76 -Government 'a Request 11/25/76 -Appraisal Missicn 01/02/77 -Negotiations 10/03/77 -Board Approval 11/15/77 -Credit Agreement Date 11/30/77 -Effectiveness Date 03/30/78 -Closing Date 12/30/81 12/31/82Borrower Kingdon of LesothoExecuting Agency Interministerial

Project AuthorityFiscal Year of Borrower April 1 to March 31Follow-up Project Name Third Education Project

Credit Number 114S-LSO

Currency Exchange Rates

Name of Currency: Maloti 1/ (abbreviation M)

Appraisal Year 1977 : Ml - US$1.1500Implementation Years 1978: Ml - US$1.1500

1979 : Ml - US$1.20941980: Ml - US$l.34021981 Ml - US$1.0454

Completion Year 1982: Ml - US$0.9314

i Although Lesotho is part of the S.A. Rand monetary area it establishedits national currency, the Maloti, in 1979 and has been mnintalned atpar with the Rand ever since- The Project was appraised in Rand.

(iii)

Data on Missions

Type of Sent Month/ No. of No. of Persons Staff Date ofMission by Year Weeks and Composition Weeks ReportReconnaissance IDA 08/75 1.8 a/ 2 (G,A) 2.6 9/04/75Identification 03/76 3.2 al 3 (G,E,NP) 9.6 4/01/76Pre-appraisal 07/76 5.2 1 (E) 5.2 7/28/76Pre-appraisal 10/76 1.6 3 (G,Ag.E) 4.8 11/23/76Appraisal 1-2177 5.0 5(E,A,2G,NP)b/ 17.0 11/02/77

Total 16.8 39.2

a/ Concurrently with supervision of Education I.b/ Of those, one general educator and the non-formal educator participated

part-time (l week each).

Supervision 1 IDA 04/78 2.0 a/ 2 (A,T) 4.0 06/05/78Supervision 2 09/78 2.2 al 3 (A,E,P) 6.6 11/08/78Supervision 3 02/79 5.1 b/ 2 (A,P) 10.2 04/04/79Supervision 4 07/79 5.0 b/ 3 (A,Adv,P) 15.0 06/17/79Supervision 5 12/79 4.4 cl 2 (A,P) 8.8 01/30/80Supervision 6 - 02-03/80 3.4 d/ 3 (A,E,P) 10.2 06/06/80Supervision 7 07-08/80 3.6 dJ 2 (A,T) 7.2 09/18/80Supervision 8 09-10/80 6.2 e/ 4 (A,E,P,T) 24.8 11/21/80Supervision 9 02/81 2.8 f/ 1 (P) 2.8 04/10/81'Supervision 10 - 06-07/81 2.8 fl 1 (A) 2.8 08/27/81Supervision 11 09-10/81 3.6 g 2 (A,P) 7.2 11/30/81Supervision 12 01-02/82 2.8 h| 4 (A,OA,P) 11.2 03/30/82Supervision 13 06/82 2.8 Fl I (P) 2.8 07/22/82Supervision 14 10-11/82 3.2 hl 2 (A,P) 6.4 12/16/82

49.9 119.0

A = ArchitectAdv - Advisor/Women in DevelopmentAg. - Agricultural EducatorC - Consultant

D.Ch = Division ChiefE - Economist

G - General EducatorOA - Operation Assistantp = Planner EducatorT - Technical EducatorNF = Non-Formal Educator

Notes: Combined with and including tine for:

a/ jointly with supervision of Educ. Ihi jointly with supervision of Educ. I and reconnaissance Educ. IIIc/ jointly with identification of Educ. IIId/ jointly with preparation of Educ. IIIe/ jointly with appraisal of Educ. IIIf/ jointly with post-appraisal of Educ. IIIj/ jointly with supervision of Educ. IIIh/ jointly with supervision of Educ. III and reconnaissance of Educ. IV

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Allocation and Disbursements of Credit Proceeds(in US$ equivalent)

Credit Credit Funds FinalCategory Allocation Reallocated Disbursements

1. Civil Works 4,500,000 + 194,339.93 4,694,339.93

2. Furniture 500,000 + 343,076.29 843,076.29

3. Equipment 600,000 + 85,307.66 685,307.66

4. Technical Assistance 300,000 - 164,971.83 135,028.17

5. Professional Services 160,000 + 194,632.75 354,632.75

6. Evaluation 120,000 - 54,330.08 65,669.92

7. Project Administration 500,000 + 221,945.28 721,945.28

8. Unallocated 820,000 - 820,000.00 0.00

TO!.:AL 7,500,000 7,500,000,00

(v)

LESOTHO - SECOND EDUCATION 1faOJECT

CREDIT 748-LSO

PROJECT COMPLETION REPORT

HIGHLIGHTS

The Development Credit Agreement became effective March 30, 1978,one month after the scheduled date of February 28, 1978. Effectiveness andearly progress were affected by delays related to the staffing of thearchitectural team. By February 1979, the project was experiencing a delayof about one year. In 1979 the Government was advised by the Bank Groupthat unless the management of the project was improved it was likely thatsubstantial cost and time overruns would occur. The Government reviewedthe situation and appointed a new director in January 1980 and the MOWseconded a new team of architects and architectural technicians to TSRP.The new staff made energetic efforts to recover lost time. As a resultimplementation progress improved and disbursements increased from US$1.2million in February 1980 to about US$6.0 million by December 31, 1981, theoriginal Credit Closing Date.

The US$7.5 million Credit was to help finance a project,estimated originally to cost US$9.3 million, to build and equip aCurriculum Development Center and to extend two technical secondary andeleven general secondary schools so that the latter could provide thediversified curriculum which had already been supported under the firstproject. Equipment and vehicles for other institutions was also includedin the project, together with technical assistance and fellowships forproject implementation, evaluation, and for training teacher-educators.Pre-investment activities and studies rounded out the project (PCR, para.3.15).

The project has been successfully implemented in regard to itsphysical facilities and appears on the way to achieving its educationalobjectives but the attempt to introduce a diversified curriculum in thesecondary schools was slowed by a lack of teachers to teach the subjectsand difficulties in finding space for the subjects on an already crowdedsecondary timetable.

Other problems of this project were educational and arose in partbecause bilateral sources, on which the project was relying to supplyspecialist teachers of various kinds were unable to provide the teachers inthe numbers required.

Basically, the objectives of the Curriculum Development Centerare being achieved (PCR, para. 6.04), as are those of expansion oftechnical schools (PCR, paras. 6.05-6.08). In respect to the secondaryeducation component the expansion of facilities and introduction of the newcourses was reached. But, at the time of the completion mission, school

(vi)

enrollments had only reached 55% of the new facilities capacity (PCR,para. 6.12) and full utilization was unlikely to be achieved for a fewyears since enrollments were being increased by only one level annually(PCR, para. 6.13). The assistance to teacher training, evaluation, andnon-formal education programs were all successful (PCR, paras. 6.16-6.20).All but one project component was completed by the original Closing Dateand at the request of the Government, the Bank Group agreed to postpone theCredit Closing Date by 12 months (to December 31, 1982) and by that datethe project had been basically completed.

The Credit of US$7.5 was fully disbursed with the final cost ofthe project being US$10.2 million versus US$9.3 million estimated atappraisal. Delays with the implementation of the civil works combined witha period of high inflationary cost increases were the main reasons for this10% cost overrun.

Overall, the project was successful and other points of specialinterest are

Ca) the purchase of supplementary equipment for the elevensecondary schools needs to be addressed at the earliestto enable these schools to increase enrollments andmaximize the use of the facilities provided (paras. 4.17,6.15);

(b) to assist the Government improve the cost effectivenessand efficiency at the secondary level, additionalassistance for the implementation of the newly establishedadministrative policies should be considered in futureprojects (para. 6.13);

c) attention should be given to the training of schoolprincipals (para. 6.13); and

(d) the quality of vocational and technical training isdependent upon improved trade testing. This areawill need further assistance in the future if not dealtwith by other donors (para. 6.10).

The project can be considered to have basically succeeded in itsobjectives including considerable institutional building as regards theimplementation agency (TSRP). Additional time is required to fullyevaluate its long term effects.

I. SUMMARY AND RECOMMENDATIONS

Project Objectives

1.01 The project was designed tc -ontribute towards increasing theGovernment's ability to deal with the two main elements which sustain thecountry's economy: (a) tbe agricultural sector, and (b) migrant employmentin the RSA. The project would help to increase the focus of primary,secondary, and adult education on rural development as a means ofattaining, over the long term, increased self reliance and reduceddependence on the RSA. In the medium term, the project would provide thecountry wtth additional skill training designed to maximize the earnings ofmigrant workers and also to 4ncrease the pool of -_killed people who mightremain in Lesotho.

1.02 Specifically, the project consisted of:

(a) The construction, furnishing, and equipping of a NationalCurriculum Development Center (NCDC);

(b) Extensions, furniture, and equipment for two existingtechnical schools;

(c) Office and trade-tescing equipment, a vehicle, andoperational expenses over the project period for a newTrade-Testing System;

(d) Extensions, furniture, and equipment for eleven general-secondary schools;

(e) Minor improvement in teacher-education workshop facilities,

limited staff housing, and a bus for the institutions (theNational Teacher Training college, the Lesotho AgriculturalCollege, and the Lerotholi Technical Institute) whichtogether will train the teachers of pre-vocational subjects;

(f) Technical assistance for the training of Basotho teacher-educators, for the Trade-Testing System, for projectimplementation (an architect, a quantity surveyor, andengineering and procurement consultants), and for fnrmativeeducational evaluation;

(g) Permanent office accommodations, furniture, vehicles,equipment, and operating expenses for projectadministration; and

(h) Pre-investment activities and studies.

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Project Costs

1.03 The cost of the project at appraisal was estimated at US$9.3million of which the Bank Group financing of US$7.5 million was ezpected tocover 81% of the total project costs. As implemented the final cost of theproject vas US$10.1 million about 10% higher than expected with the IDAfinancing 75% and the Government funding 25Z. Cost overruns were mainlyexperienced in civil works, 7%; furniture, 39%; and equipment, 27%. Theseincreases were mainly due to the high lnflationary cost increasesexperienced in SoutnQcn Africa and as a result of delays in implementation.

Project Implementation and Outcomes

1.04 The projact became effective about one month beyond the originaltermination date due to belated staffing of the architectural team.Project implementation experienced difficulties during the first two yearsbut following a change in personnel the components were rapidly andefficiently implemented. In brief, the execution of the project componentswas as follow,s:

(a) A National Curriculum Development Center (NCDC) wasconstructed, furnished, equipped and has been in use since December 1980.The facilities for curriculum development, career guidance, a primaryexamination unit, a statistics unit and the TSRP were provided. All thefacilities, except for the career guidance where staffing problems haveoccured, are being used for the purpose they were designed.

(b) Two existing religious administered technical/trade schools,the Technical School of Leribe (TSL) and the Leloaleng Trade School (LTS)have been expanded and provided with appropriate furniture and equipment.The TSL component was successfully built by the departmental forces ofschool (using teachers and students) and was completed about two yearsahead of schedule. At the time of the Completion mission the LTS'senrollments were 57% greater than the target, while those of the technicalschool of Leribe, largely due to management problems, had reached only 83%of the enrollment planned at appraisal. The two institutions haveintroduced all the proposed courses. Both schools have also establishedadvisory committees which have initiated adult training programs.

(c) The trade testing system, which had been started by theGovernment prior to Credit effectiveness, was provided with the appropriatematerials and equipment required for its operation.

(d) Eleven secondary schools were provided with facilities andequipment to introduce practical subjects with the enrollment targetsreaching about 60% of the appraisal estimate in 1984. The slower thanexpected growth is largely due to the shortage of teachers. Enrollmentsare expected to be reached within a few years. All the proposed facilities

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have been completed and adequately furnished. Some shortages of equipmentare being experienced in two subjects, home-economics and agriculture. Theelementary technology subjects with supplementary equipment supplied by theIrish Government have been satisfactorily equipped. The introduction ofthe secondary practical subject's program is having initiation problemsresulting from: (i) the late construction (all facilities built during thelast three years of the project); (ii) the delays in electricalreticulation; (iii) a shortage of qualified teachers; (iv) the weakadministrative skills of the principals; and (v) the lack of clearimplementation policies from the MOE. At the time of the completionmission the Government had, with the assistance of an evaluator, identifiedthe above problems and had established appropriate secondary schooladministrative policies and started training principals.

(e) With the assistance of the Irish Technical AssistanceProgram, the project component to strengthen the training of teachers inelementary technology was implemented. An existing facilty at theNational Teacher Training College (NTTC) was upgraded and equipped. Avehicle was purchased to assist with the transport of teacher tralnees inagriculture to the Lesotho Agricultural College (LAC) and the technologystudents to LTI. This program of joint teaching between LAC, LTI, and NTTCwas initiated in 1979 but was dropped in L980 due to coordinationproblems. With assistance from the Irish Technical Assistance a one-yearimproved pedagogical training program in elementary technology has beenimplemented at NTTC.

(f) Only the part of the technical assistance necessary tosuccessfully implement the above programs and services was obtained. TheBritish High Commission which was to provide about 240 man-months for theNCDC was unable, due to budgetary reductions, to supply the advisors.Fewer teachers than expected were made available by other donor agencies,thus making the introduction of the practical subjects in the secondaryschools more difficult. The Irish Government did supply about 80man-months of unscheduled technical assistance for teacher training and theteaching of elementary technology.

(g) Funds made available in the pre-investment category were used

to employ a consultant architect and a textbook consultant to prepare theongoing Third Education Project (Credit No. 1148-LSO). Funds were alsoused to purchase computer equipment for the planning office and toconstruct a pilot primary school/craft center where children or the RomaValley attend courses in the production of local crafts.

1.05 Generally, it can be stated that the objectives of the projecthave basically been achieved L.>. it is too early to determine whether theproject wiU achieve its long tern objectives of quality output and ofreducing the dependency on expatriates. The indications point to a goodbeginning in their directions and are being reinforced under the ThirdEducation Project.

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Recommendations

1.06 The Government should exert efforts to implement its new policiesas contained in the recently approved Education Sector Survey, inparticular those pertaining to secondary education (Report of the TaskForce Nov. 1982) to maximize the returns to their investment in the elevensecondary schools.

1.07 The arrangement of seconding Ministry of Works staff to the TSRParchitectural team was a worthwhile solution and should be continued infuture projects. That structure allows the MOW to control the employmentof the technicians and speeds up the processing and approval of designs andplans and enhances the dialogue with MDE.

1.08 The preparation of equipment lists should always involve therecipient school and be approved by HOE. To make that process efficientthe MOE with TSRP should formalize within specific time limits thisprocedure to prevent delays in processing and avoid changing lists three orfour times as experienced during the project.

1.09 TSRP should have a system of central files controlled by itsdirector to avoid the loss of important documents such as equipment listswhich happened when staff changes occurred.

1.10 As stressed by many supervision reports the execution of aproject will suffer major delays if the activities of the accounts,procurement and architectural units are not properly coordinated. Effortsto better coordinate and train the staff of the above units must becontinued.

Lessons Learned

1.11 The implementation of the Second Education Project produced thefollowing lessons:

(a) The Bank Group probably should have been more cautious infinancing a second phase of facilities for practical subjects at thesecondary level when policy issues faced by the first phase (six schools inthe First Education Project were still not resolved. Issues thatparticularly should have been resolved include staffing, curriculum andexamination matters. Since the above policy issues had not been resolvedthe Third Education Project (Credit 1148-LSO) did not include a secondarycomponent. The Government since then has completed an Education SectorSurvey and has established specific policies for curriculum, facilities andstaffing. With funds from the PPF (P264-LSO), an analysis of tiiefacilities and utilization of staff is being carried out. The study willgive the Government the data needed to implement its recently adoptededucatien policies. Future investment in secondary education should hingeon the conditionality that the Government implement its official policies;

(b) Additional attention should be given to the training of thekey staff of the project implementation unit, particularly of the director,accountant and procurement officers;

(c) Weakness in MOE and school principals management affected theimplementation of new programs. It is not sufficient to supply newfacilities and equipment; MOE staff and principals must be trained on howto make the most efficient use of the investment. This issue needs to beaddressed in order to further improve the efficiency and quality of theeducation system; and

(d) Provision of technical assistance provided by donor agenciesshould be carefully reviewed and appropriate assurances obtained where thesuccess of a component like the NCDC is dependent. As a precautionarymeasure key posts should be included within the project as was done in theThird Education Project.

TI. INTRODUCTION

2.01 This report is based on the findings of a mission by Messrs. A.Aimg (Education Planner) and M. Giuseppi (Architect) and Ms. H. Yamaguchi(Operations Assistant), who visited Lesotho February 18 to March 3, 1983.The mission visited seven of eleven junior secondary schools, the NationalCurriculum Development Center (NCDC), the National Teacher Training College(NTTC), the two vocational schools included in the project and the newpremises of the Project Implementation Unit (called Training For SelfReliance Project in Lesotho - TSRP). The completion mission reviewed thephysical execution of the project and assessed it in comparison with theappraisal estimates. It also analysed the impact of the project vis-a-vis,its objectives.

2.02 This report is further based on: (a) a completion reportprepared by the TSRP and submitted to the Bank Group by the Ministry ofEducation, cn June 30, 1982; (b) information obtained from correspondence,studies and data in the World Bank files, particularly staff supervisionreports and progress reports received from the TSRP and other departmentsof the Government; (c) visits to institutions mentioned above; and (d)discussions with TSRP staff and other Government officials, principals,staff and students of project institutions, consultanus and Bank Groupstaff familiar with the project.

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III. PROJECT BACKGROUND

Socio-Economic Setting

3.01 At the time of appraisal in 1976, Lesotho, a small countrysurrounded by the Republic of South Africa (RSA), had been independent forten years. The total land area of 30,350 square kilometers ranges from5,000 to 11,000 feet in altitude and had a population of 1.4 milliongrowing at a rate of 2.4% per year. Agriculture accounted for more thanhalf of the GDP and two thirds of the country's export earnings, but onlyabout 13% of the land surface is suitable for crop production. By 1979/80the GNP per capita was estimated at US$530 equivalent, although GDP percapita in the same year was about US$435 equivalent. The difference wascomposed mainly of migrant vorkers remittances.

3.02 During the 1970's and despite the country's limited resources,Lesotho's GNP grew at an impressive average rate of 9% per annum in realterms. In the last two years (1982-83) however, because of the detrimentaleffects of world recession compounded by a prolonged drought and theclosing of the only large diamond mine in the country, the rate of economicgrowth is estimated to have declined to only 3% per annum.

3.03 The slower expansion of the economy was accompanied byincreasing fiscal deficits, financed mainly by commercial borrowing, theservice of which, is placing a heavy burden on the budget. Although in1982-83 there was noticeable improvement in the fiscal outcome due to aconcerted effort to keep expenditures under control through freezes inGovernment employment and wages and reduction in public investment, furtherimprovement is required.

3.04 Mainly because of Lesotho's limited natural resources and likelydecline in employment openings in the RSA, development prospects do notappear as promising as in the 1970's - Nevertheless, opportunities do existfor economic improvement. These include better use of the countrylhydroelectric potential, introduction of high-value crops, improved rangeand crop land management and further development of livestock-based exportindustries. However, in order to succeed along these lines, it isnecessary to restore the public sector financial health and in generalincrease the efficiency of public sector management and operation. Inparticular, the planning and budgetary processes need special attention.It is also necessary to provide the citizenry with the specific skillsrequired for the effective implementation of development projects in theabove mentioned fields.

3.05 i. 1980, the distribution of the labor force was 36% inagriculture, 49% in the mines and industrial sector of South Africa, 9% inthe services sector and 6% in industry. The most striking feature of

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Lesotho's employment situation is the fact that almost half of the malelabor force (an estimated 160,000 people in 1980, according to the NationalManpower Development Study) was employed in the RSA. With so many menabsent from Lesotho at any one time, women play a significant role in theeconomic affairs (farming, marketing, industry, and services) as well as inthe political affairs of the nation.

The Education Sector

3.06 At Independence in 1966, Lesotho found itself with a large formaleducation network, provided by various mission societies, theadministration of which was largely in the hands of the churches. At thattime, few Basotho had obtained education beyond the junior secondary levelor had benefitted from skill training. The country had until then reliedheavily on expatriate expertise for the preparation and implementation ofdevelopment programs.

3.07 Following Independence, the new Government identified educationas a priority and made serious efforts to increase its administrativecontrol over the system. The Lesotho education system at the time ofappraisal was and still remains a joint venture between the Government andthe churches where the latter own and operate 97% of the primary and 86X ofthe secondary schools, while the Government pays salaries of primary andsecondary teachers.

3.08 The structure of the formal education system and the organizationof the Ministry of Education (MOE) are shown in Charts 1, 2 and 3. Thesystem consists of seven years of primary education, five years ofsecondary education (three years of junior secondary and two years ofsenior secondary) and four to six years of higher education (Chart 1). Theadministrative, financial, and academic control of the formal educationsystem is vested in MOE. The MOE trains and appoints teachers, administersexaminations, reviews and authorizes curricula, opens and closes schools,inspects the operations of alU schools, and pays teachers' salaries.Although the National University of Lesotho (NUL) is administered by anindependent board, MOE provides the bulk of its recurrent budget and isrepresented on the Board of Directors. Additional special trainingprograms are operated by the Ministries of Agriculture, Commerce andIndustry, Rural Development, Health, the Prime Minister's Office, and inthe industrial sector by the Lesotho National Development Corporation.

3.09 In 1982 primary schools had a total enrollment equivalent to 123%of the girls and 102% of the boys aged six to twelve. Almost all theprimary teachers were Basotho of which 36% were unqualified and the primaryteacher pupil ratio was 1:48. During the 1970's there was an enormousgrowth in general secondary school enrollments, from 5,370 students in 1970to 29,000 in 1982 which was equivalent to about 20% of the population aged13 to 17. In 1982, 1,314 secondary teachers (30% unqualified) wereemployed resulting in a teacher-pupil ratio of 1:21.

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3.10 At the higher level, the National University of Lesotho offerscourses in humanities, social sciences, education, law and science to about1,140 students. In addition, about 423 students are sent abroad to studyin fields not offered by NUL.

3.11 Non-formal education courses are provided by MOE through theLesotho Distance Teaching Center (LDTC) and by four other Mini.itries(Agriculture, Health, Interior and Rural Development). In addi%zlca,courses are provided by the Prime Minister's Office, five non-statutoryagencies, the NUL, and by over 400 church and voluntary groups with littlecooperation and coordination among them. LDTC provides (a) correspondencecourses at the JC and COSC levels; (b) formal and non-formal educationalradio programs; (c) coordination for MOE's adult non-formal educationprograms; and (d) support to mass media in Lesotho.

Project Identification

3.12 In August 1975 a Bank Group mission responded to a Government'srequest to consider a possible Second Education Project. The mission foundthat the Government had already prepared the education chapter for theSecond Five-Year Development Plan (1976-1981). The education chapterdefined education needs including, inter alia, expansion of the practicalsubjects at the secondary level, initiation of non-formal education,expansion of vocational/technical training facilities and curriculumdevelopment.

3.13 The Government's request was further reviewed during missions inMarch and July 1976 and possible project components were identified duringa mission in October 1976. All of the components proposed by theGovernment, except the non-formal training program which was not fullyprepared, were retained. The project was prepared by the Government withthe assistance of experts hired with funds provided by the-First EducationProject (Credit 497-LSO). During appraisal in January/February 1977,provision of funds for studies, assistance to the Trade Testing Center andfellowship fees for teachers at the NTTC and for MOE inspectors were alsoincluded in the project. Negotiations were held in October 1977 and theproject was approved on November 15, 1977. The Development CreditAgreement was signed on November 30, 1977 providing an IDA financing ofUS$7.5 million.

Project Objectives

3.14 The project was designed to contribute towards increasing theGovernment's ability to deal with the two main elements which sustain thecountry's economy: (a) the agricultural sector, and (b) migrant employmentin the RSA. The project would help to increase the focus of primary,secondary, and adult education on rural development as a means ofattaining, over the long term, increased self reliance and reduced

dependence on the RSA. In the medium term, the project would provide thecountry with additional skill training designed to maximize the earnings ofmigrant workers and also to increase the pool of skilled people who mightremain in Lesotho. The project's broad objectives were to (a) establish acurriculum-development center, including strengthened career-guidance andeducational-radio services; (b) increase the facilities for technicaleducation, making it possible to expand enrollments and to introducecourses for adults; (c) assist with establishment of a new, permanenttrade-testing system; (d) expand the curriculum-diversification program atthe level of secondary education by introducing pre-vocational subjects inagriculture, elementary technology, home economics and commerce; (e)strengthen the institutions responsible for training teachers ofpre-vocational subjects; and (f) provide the human resources necessary forthe above services and institutions, the implementation of the project,formative evaluation of the secondary-level pre-vocational subjects; and(g) preparation of future programs and projects.

Project Content

3.15 Specifically, the project as approved included:

(a) The construction, furnishing, and equipping of a NationalCurriculum Development Center (NCDC);

(b) Extensions, furniture, and equipment for two existingtechnical schools;

(c) Office and trade-testing equipment, a vehicle, andoperational expenses over the project period for a newTrade-Testing System;

(d) Extensions, furniture, and equipQent for eleven general-secondary schools;

(e) Minor improvements in teacher-education workshop facilities,limited staff housing, and a bus for the institutions (theNational Teacher Training college, the Lesotho AgriculturalCollege, and the Lerotholi Technical Institute) whichtogether will train the teachers of pre-vocational subjects;

(f) Technical assistance for the training of Basotho teacher-educators, for the Trade-Testing System, for projectimplementation (an architect, a quantity surveyor, andengineering and procurement consultants), and for formativeeducational evaluation;

(g) Permanent office accommodations, furniture, vehicles,equipment, and operating expenses for projectadministration; and

(h) Pre-investment activities and studies.

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Modifications to the Project

3.16 The Government, in a letter dated July 21, 1981, requested thepostponement of the Credit Closing Date. The request was made when TSRPrealized that it could not, for technical reasons, complete as scheduledthe 15 staff houses in Maseru. In support of the TSRP management which badperformed well during the last two years and based on the technicalproblems encountered, the Borrower's request was accepted and by telexdated November 20, 1981 the Credit Closing Date was postponed from December31, 1981 to December 31, 1982.

IV. PROJECT IMPLEMENTATION

Credit Effectiveness

4.01 The establishment and staffing of the architectural team withinthe Ministry of Works for project implementation was a condition of crec'tteffectiveness. The Development Credit Agreement became effective on March30, 1978, about one month later than anticipated due to delays in staffingthe architectural team.

Project Administration

4.02 TSRP which had administered the First Education Project, wasassigned the implementation responsibilities of the second project.Government supervision of TSRP was the responsibility of aninterministerial project authority chaired by the Permanent Secretary ofthe Ministry of Education. TSRP's function was to implement the projectwhile helping Government establish an effective school building programusing standardized designs for educational facilities. TSRP was staffed byBasotho throughout the project implementation (director, deputy director,accountant, procurement officers and support staff) (para. 4.06). Thearchitectural personnel of TSRP, on the other hand, was initially staffedprimarily by expatriate architects and technicians but it graduallyincreased the number of Basotho employed with the result that by the ead ofthe project about 60% of the architectural staff were Basotho. Locallybased consultants and quantity surveyors, civil engineers and sitesupervisors were employed to assist the architectural unit.

4.03 A procurement consultant was employed as needed to assist withthe purchase of furniture and equipment. An evaluation consultant wasemployed from September 1980 to the end of the project to evaluate andassist with the implementation of practical subjects and vocational

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components. All the consultants performed satisfactorily with theexception that no appropriate training for local staff was provided by :heprocurement consultant.

4.04 As part of the project's objectives to develop local manpowerresources and to increase self-reliance, the deputy project director wasinvited to the Economic Development Institute's project management seminarin Washington and the accounting study program of the assistant accountant(evening classes) were financed by the project. Much progress was realizedin keeping of records by both the accounting and procurement divisions butat the close of the project the staff of these units still needed furtherstrengthening. This issue will be addressed in the proposed FourthEducation Project. Another successful training program was organizedbetween the architectural unit and the Technician Training Program of thePolytechnic. About six architectural and engineering technicians traineesat one time, (twelve per year) were given about six months of on-the-jobtraining during the last three years of project implementation. Thetrainees were paid a stipend by TSRP. This training was very successfuland greatly assisted the architectural team in advancing projectimplementation as well as providing practical on-the-job experience.Institutional building as regards the TSRP has been good and furtherimprovement is expected as the staff gain more experience.

Physical Implementation

4.05 Suitable sites were available for the expansions of existingschools and the construction of new facilities at institutions included inthe project. The construction of the NCDC and of the TSRP facilities werecombined in order to reduce costs. A site for 15 staff houses in Maseruwas provided early in 1978. Unfortunately this site had drainage problemsand because of the difficulties in finding another suitable site thehydrological problems required the assessraent of a consulting engineer whofound an acceptable solution. The study delayed the constructica of thehouses, and as a result the Government requested to have the Credit ClosingDate postponed by one year. Due to the late start of the constructionphase and to the extra site work required as a result of the hydrologicalconditions, to remain within its budget only 13 of the 15 houses wereconstructed. Since this reduction did not affect the project's educationalobjectives it was accepted by the Bank Group.

4.06 Architectural/Engineering Services. The establishment of anarchitectural team to assist TSRP with the design and supervision ofconstruction works was a condition of Credit effectiveness. Difficultiesin recruiting an architect delayed the effectiveness of the Credit by onemonth. Work had been initiated by an architect provided by UNESCO for theFirst Education Project. This architect left Lesotho in mid-May 1978 andthe architect financed under the project took up his post in July 1978.About a year after effectiveness the architectural team was composed of two

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architects (one local) under contract with TSRP, and another architectprovided by DANIDA, and two architectural technicians. Due to thedifficulties in recruitment it was decided to use consultants for quantitysurveying and construction supervision work. The architectural teaminitially located in the MOW had no clear terms of reference for theeducation project it was assigned to. Also no division of responsibilitieswere defined between IOW and MOE. In February 1979 a Bank Groupsupervision mission found that the architectural design prepared exceededby as much as 30% the agreed construction areas and that the high standardsof design resulted in costs that exceeded appraisal estimates by about90%. The architectural designs were reviewed and the TSRP Director wasadvised to have these simplified and to remain within the agreed areas andcosts. This was done but about one year of the implementation period waslost.

4.07 In August 1979 the Government nominated a review commission toevaluate the TSRP management. As a result of the review the procurementofficer and his assistant resigned, and the TSRP Director was transferredto another Government position. A new Director was nominated in January1980, and a procurement officer in February 1980. The architectural teamremained for a while with only two architects, one in charge of the designof only the Paray and St. James Secondary Schools, located in mountainareas. The architectural designs for the Leribe Technical School werecompleted in mid-1979, and the construction contract using the school'son-the-job training program, involving students and teachers was signedbetween MOW and the Leribe School administration (para. 4.12).

4.08 The design and the tender documentation for the NCDC and threeother schools were ready by November 1979. Unfortunatelv the architectin charge had to resign for health reasons in November 1979. A newarchitect, provided by Irish Technical Assistance, was Pcsted to TSRP byMOW in December 1979. Efforts to make-up the lost time were made and inOctober 1980 a Bank Group supervision mission reported that constructionwork was virtually completed at the NCDC, at four high schools and at atechnical school. In addition, construction works were proceeding at sixmore high schools, including the mountain school implemented through directlabor, and construction contracts were signed for the expansion of a tradesschool and a junior secondary school. All the physical facilities includedin the projects were underway, with the exception of the 15 staff houses inMaseru.

4.09 Due to their remote locations and lack of interested contractorsthe Credit Agreement (Schedule 3, C (ii)) included a clause regarding theuse of force account methods for the construction of Paray and St. Jamesschools. However, in 1980, the Government had carried-out, with thesupport of external aid, a comprehensive development scheme in the area ofThaba Tseka, where the Paray school is located. Consequently civil workscontractors were in the area and a construction contract was awarded using

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LCB. The construction of the most remote school, St. James, wasimplemented by foree account. The force account operation which started inNovember 1979 ran immediately into procurement, transport, and financialmanagement problems. The MOW did its best to help and posted in St. Jamesone of its most competent foremen. Nevertheless, the difficulties ofprocurement and transport could not be totally resolved and the component'sconstruction work was delayed and was completed just prior to the extendedCredit Closing Date. The DANIDA Architect left the TSRP in June 1981, andthe architect provided by the Irish T.A. took over the supervision of St.James and another architect sponsored by USAID was assigned supervision ofthe Paray school.

4.10 The services of civil engineer, quantity surveyor and sitesupervisors provided by locally based consultants, were timely andprofessionally carried out.

4.11 The designs prepared by the architectural team took into dueconsideration the experience acquired during the implementation of theFirst Education Project. The opinions and observations made by the usersof the facilities included in that project were also taken into account,and an improved standard of design was developed, which was more economicaland easily replicable. Maximum use was made of locally producedconstruction materials and the construction details adopted were simpleenough to be executed by medium-sized domestic contractors which wereoperating in the interior of the country. The final designs respected theagreed areas. The final project cost had a modest cost overrun of 9X whichcould have been entirely avoided with an earlier start of implementation.Generally, all the physical facilities provided under the project with theexception of the kitchens at Bereng and Hlotse and the home-economicsfacilities at Paray and St. James, are functional and economical, and theyserve their intended purpose. The kitchens were overdesigned (built on thebasis of a large commercial enterprise) with the result that they are toocostly for the schools to operate. The original home-economics classroomsdesigns approved by the Bank Group staff were modified without agreement ofBank Group staff. The two rooms originally proposed were combined into onereduced in size with the result that it is difficult to teach the program.Floor finishing is mostly in cement and walls are of locally producedbricks or cement blocks. Timber roof trusses or steel trusses had to beimported as corrugated asbestos sheets or clay tile roofing cover. Thesematerials provide adequate thermal and noise insulation.

4.12 Construction. LCB was mainly used for the implementation of thephysical facilities in the project. Due to the comparatively small andscattered locations, only medium sized domestic contractors answered theinvitations to tender. In the case of the Leribe Technical School theadministration of the school undertook the construction (para. 4.07). AtChrist the King High School, the school administration had built all theother buildings on the campus using expensive dressed stones. The school

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proposed for aesthetlc compatbillity to bear the difference in cost for theconstruction of the academic buildings using the same dressed stones. Theproposal was accepted and good quality work was timely executed withLi thecost estimate.

4.13 Force Account. Due to its remote mountain location the St.James' school did not attract any contractors and the construction wsacarried out by force account organized by NOW. The operation ran into thedifficulties of obtaining construction materials because of poor financialrecord keeping. The construction activilies at St. James dragged on fromNovember 1979 to December 31, 1982, the final Credit Closing Date. After afinal inspection made in January 1983, the TSRP archltect reported that acertain amount of work was still to be done, about 14Z (M. 80,000) of thecomponent in monetary terms. Nevertheless, the total cost of the componentinclusive of the remaining work to be completed was about 15X less than theamount estimated at appraisal including all contingencies (M. 653,521). Inconclusion the use of force account in the project was not an entirelynegative experience, but it should be kept in mind that it was limited toonly one school (less than IOZ of the total construction work) and receivedall possible attention and support from a very active MOW.

4.14 Maintenance of Facilities. The maintenance of the schoolfacilities has been previously carried out by the religlous missions andorganizations who own and adminlster the schools including the collectionof a maintenance fee from the parents of the students. In most cases theschools are well run and properly maintained, in spite of the fact thatsome of the fees collected for the maintenance are used to add newfacilities (which in turn have to be maintained). In other cases,particularly in schools administrated directly by the MOE, maLntenance laentirely la6king. Under the proposed Fourth Education Project, a system ofmaintenance control is to be established.

Furniture and Equipment

4.15 The original cost of furniture was estimated at M520,000including contingencies and the equipment at M593,300 includingcontingencies for a total of M1,113,300. The final costs are: furnitureM743,800 (about M223,800 above appraisal estimate), and equipment M732,800(about M139,500 above estimate); for a total cost of M1,479.600 or about28% above the estimate (Annex 2). TSRP with assistance from a consultantprepared all furniture and equipment lists, tender documentations, tenderanalysis, contract awards, and supervised the procurement and dlstributionto the project institutions. Approximately 75% of the furniture andequipment was procured through ICB, 5% by LCB and the remaining 20% byother approved methods. All procurement was processed by the LesothoTender Board. Goods were supplied by Canadian, British, American, Japaneseand German companies, with the main suppliers coming from the RSA. Thefurniture and equipment supplied at the Leribe Technical School, the

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Leloaleng Trade School, the Trade Testing Center and teacher trainingcomponents are experiencing high usage rates estimated at over 90Z by TSRPstaff. It is believed that the close participation of the lnstitutlon'sstaff in the selection process at these schools largely accounts for thesuitability and high usage of equipment.

4.16 Some shortcomings in the supply of equipment to the secondaryschools has been experienced. Insufficient numbers of hand tools forelementary technology and agriculture and home economics utensils weresupplied. Some over sophisticated (i.e., drafting equipment, radial armsaws and elaborate hatching brooders) were purchased. However, most ofthis equipment was exchanged for hand tools or transferred to theAgriculture Training College. The equipment for the practical subjectelementary technology (woodwork, metalwork, technical drawing) isappropriate and adequate to teach the new syllabus. At the time of thecompletion mission, some shortages in the home-economics and agricultureequipment were being experienced with the result that the introduction ofthe latter courses in some schools has been difficult or delayed. Inaddition, the Government was unable to recruit all the expatriate teachersIt had hoped to. Combined with the shortage of qualified teachers, certainschools (Hlotse, Masitise, St. Agnes and Bereng) were unable to beginteaching some of the practical subjects in January 1982, because of delaysexperienced with electrical connections. As of 1983, during the secondyear of implementation of the program, only about 78% of the new subjectshad been started. As a consequence, only about 512 of the furniture andequipment supplied were being used at the time of the mission. But inJanuary 1984, when the third year of a three-year intake for the practicalsubject program is implemented, the MOE expects that all the courses willbe started with the enrollment and utilization of equipment increasedaccordingly. This will be reviewed by future Bank Group educationmissions.

4.17 Funds are included in the forthcoming Fourth Education Projectfor supplementary equipment at the schools. It is Important to note thatthe list of equipment procured by TSRP is not the list the Bank staffapproved in 1979. It appears that when the new procurement officer tookhis post in 1980, he did not have the original lists, and to satisfy therequest for speedy procurement, new lists were hurriedly produced withminimal consultation with the schools. When the new lists were provided tothe Bank Group staff for review in 1981, TSRP was advised to adjust thequantities of equipment. In spite of repeated confirmations to the BankGroup missions only minimal adjustments were made and it was not until BankGroup staff advised TSRP that the reimbursement of withdrawal applicationfor equipment would be delayed until the requested information wasreceived, and that combined with the complaints from the institutionssuffering from shortages of equipment, TSRP finally made attempts to adjustthe lists. As a result of this experience, the MOE has established apolicy that all future equipment lists will require the signatures of aschool representative and of a subject specialist from the MOE prior totheir being approved for procurement.

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Technical Assistance

4.18 To assist TSRP implement the project, 216 man-months (mm) oftechuical assistance and 72 am of consultant services for evalustion, tradetesting, architectural, engineering end procurement were provided under theproject. At appraisal the average mm cost per month for these services wasestimated at US$2,500. The project actually used 55 mm of T.A. forarchitectural services, about 8 m (on a part-time basis) for procurementand 18 mm for evaluation for a total of 81 mm. In respect to architecturalT.A., another 33 mm were supplied by bilateral agencies (Irlsh and USAID).The performance of the technical assistance has been satisfactory. Due torecruitment problems and the intervention of other donor agencies, thetotal T.A. used was less than estimated at the time of appraisal, but mreconsultant services were used for engineering, construction supervision,and quantity surveyor services. The project included US$353,100 fortechnical assistance including contingencies whlle only about US$225,900equivalent was used during project implementation. On the other hand,expenditures for consultant services estimated at US$199,700 increased toabout US$417,100. Total expenditures for T.A. and consultants wereUS$640,900 versus US$643,000 as originally estimated.

4.19 In addition to the above T.A. the appraisal team identified atotal of 984 mm of experts/consultants to be provided by other bilateraland multilateral agencies. That assistance consisted of 240 mm for theNCDC, 360 mm for the technical and trade schools (Leribe and Leloaleng), 48mm for the Lesotho Agricultural College (LAC), 192 mm for the secondaryschools and 144 mm for the NTTC. The MOE was able to obtain the followingT.A.: 115 mm at NCDC; 348 mm at technical and trade schools; 60 m at LAC;144 mm at secondary schools; and 54 mm at NTTC, for a total of 721 mm witha shortfall of 263 mm. The shortfalls in T.A. occured primarily at theNCDC and secondary schools level because of budgetary reductions bydonors. Also, the 24 mm of T.A. provided for the Trade Testing Center wasnot used because the trade testing system operating at LTI was alreadyassisted by T.A. teachers working at the institutions. This shortfall didnot materially effect the outcome of this project.

Audit Reports

4.20 As set forth in Section 4.01 of the Development Credit Agreement,audit reports, prepared by the Auditor General, were to be submitted foreach year of project implementation. Delays in the submission of reportswere experienced during the first three years of project implementation.However, after Bank Group supervision missions reviewed the process and duedates directly with the Auditor General's office, the reports were preparedand forwarded to the Association on time. The reports were satisfactoryand always included a statement of remedial actions that had been or wereto be taken by the TSRP.

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Pre-investment Studies

4.21 As part of a long term investment program, the project providedfunds to support pre-in7estment studies which included the preparation offuture projects, and support for the continuation of a tracer study (Annex5, Key Indicator, Section 3). Funds were used to: (a) employ architecturaland textbook consultants for the preparation of a Third Education Projectwhich was appraised in September 1980; (b) a survey existing educationradio programs and methods to improve the educational impact of the radiowhich was completed in 1981 (however largely due to a shortage ofcounterpart funds, tne Government is still assessing the recommendations ofthe survey); (c) construct a pilot, self-financing handicraft center totrain in crafts, primary and junior secondery students and adults from theRoma Valley on a rotation basis M14,000). The Roma Valley is one of themajor handicraft production areas of Lesotho. To guarantee full use of thecenter, it was built next to a primary school e_periencing a shortage ofclassrooms. At the tirie of the completiun mission, about 140 women wereactive at the cen-ter and about 1,900 primar?7 pupils were receiving.instruction on specific days. To allow mothers to work at the center, a -day-care center was established in existing facilities. Pre-investmentfunds were also used to purchase computer eq-aipment (M75,000) to link-upthe education planning unit with the Department of Statistics. With thehelp of an adviser supplied by USAID, about twelve operators and twocomputer specialists (master's level) were trained locally and abroad. Theabove input has enabled the MOE to establish a comprehensive statisticalaud data base for the education system.

4.22 Only part of the funds identified for the tracer study wereutilized because the specialist responsible for the study was transferredto another Government position and was never replaced. The evaluationconsultant in his spare time tried to continue the collection of data butwas unable to analyze it. At completion, the MOE was still seeking aqualified person to continue the tracer study.

Retroactive Financing

4.23 Retroactive financing not exceeding US$150,000 equivalent for:(a) the acquisition of architectural copyrights; and (b) the specialistsservices of an architect and engineer was provided under the agreement.The Government decided not to utilize the school designs that a privatefirm of architects developed for the First Education Project and thereforedid not purchase the copyright. The specialists services of an architectand engineer were financed under the First Education Project. Retroactivefinancing was therefore not utilized under the project.

Covenants

4.24 The covenants of the Development Credit Agreement reviewed inAnnex 4 were timely fulfilled with the exception of Section 3.03 (b),employment of an evaluation specialist, and Section 4.04, establishment of

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permanent advisory committees at the Leribe and Leloaleng schools, 'whichexperienced delays. Section 3.04, regarding the provision of technicalassistance by other institutions experienced shortfalls and Section 4.06 onestablishment of a council for educational broadcasting was not yetestablished as of December 31, 1982, the Credit Closing Date. However, theGovernment was in the process of organizing such a council. Initial delaywas also encountered in timely receipt of audit reports. In sumiary, thecombination of the Government efforts together with the assistance ofregular Bank Group supervision missions, which monitored the project,resulted in most covenants being satisfactorily implemented.

Bank Group Performance

4.25 The project was supervised by 14 missions, excluding thecompletion mission (March 1983, done jointly with supervision of the ThirdEducation Project), and several visits by the staff from the Controller'sUnit in the Bank's Regional Mission in Eastern Africa. Most missions wereorganized in conjunction with reviews of other education projects inLesotho and in neighbouring countries. The intervals between missions werebetween two and five months, with half of them of five months. Architectsparticipated in twelve missions, Technical Educators in two, Economists Inthree, Education Planners in eleven, the Division Chief in one and anOperations Assistant in one.

4.26 The Bank Group should have been more reluctant to include in theSecond Education Project a second phase of the introduction of practicalsubjects at the secondary level until the first phase included in the FirstEducation Project had been completed. The inclusion of the component couldhave been delayed particularly since the Government had yet to establish asuitable policy at the secondary level such as teacher distribution,timetable regulations and responsibilities for operating costs (para.6.13).

4.27 Bank Group supervision was slow in pointing out to the TSRPproject administration the need to speed-up the project implementationduring the start-up period. This was largely due to the good reputationgained by the previous TSRP administration, which had successfullyimplemented the First Education Project.

4.28 Nevertheless, the Bank Group staff supervising the projectgreatly assisted the Government to re-organize TSRP in 1979-1980 andmaintained a good relationship with the officials throughout the project.As a result of this close cooperation, the Second Education Project wassuccessfully implemented, and led the way for the Third Education Projectwhich is being implemented satisfactorily.

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V. PROJECT COSTS AND FINANCING

Capital Costs

5.01 Comparisons of estimated and actual costs of pbysical facilitiesare shown in Annexes land 2. Total estimated costs including contingenciesat appraisal were M. 8.1 million or US$9.3 million equivalent (at theprevailing rate of exchange of 1977 of MI - US$1.15). The Creditallocation of US$7.5 million was to cover 81X of the total estimatedproject cost iucluding taxes or 84Z of the total estimated project costexcluding taxes. The final cost of the project was M. 8.8 corresponding toabout US$10.2 million (at the average weighted rate of exchange consisteutwith project implementation period of Ml - US$1.1549). US$7.5 million orthe entire Credit allocation were disbursed, representing about 74Z of thefinal project cost.

5.02 A detailed comparison of the appraisal cost estimate and thefinal project cost is shown in the following tables:

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Project Cost by Component(Maloti and USS Millions)

Percent ofActual in

Appraisal Actual respect ofEstimate Cost Estimated

Z of Z of CostOriginal Components m US$ Total H US$ Total M US$

1. Construction, Furnitureand Equipment for:

a. National CurriculumDevelopment Centerand Project Adminis-tration 0.71 0.82a/ 9% 1.21 1.40b/142 170% 170%

b. Technical Schools 0.60 0.69 7% 0.66 0.76 7% 110 110%-

c. Secondary Schools 5.28 6.07 65% 5.65 6.53 64% 107X 108%

d. Consolidation ofSecondary TeacherEducation, TradeTesting and Tech-nical Assistance 0.24 0.28 3% 0.04 0.05 1% 17% 18%

2. Technical Assistance 0.35 0.40 4% 0.20 0.23 2% 57% 58%

3. Project Administrationand PreinvestmentActivities and Studies 0.57 0.66 7% 0.60 0.69 7% 105% 105%

4. Architectural, Enginee-ring and ProcurementServices 0.20 0.23 3% 0.36 0.42 4% 180% 183%

5. Formative Evaluation 0.12 0.14 2% 0.10 0.11 1% 83% 79%

TOTAL (1-5) 8.07 9.29 100% 8.82c/10.09 100% 109Z 109%

a/ Using the rate of exchange prevailing at the time ofappraisal : Ml = US$1.15

b/ Using the weighted average rate of exchange consistent with theimplementation of the project : M1 US$1.15494

c/ The source of information is the data supplied by the TSRParchitectural team. A slight discrepancy exists with the datareceived from the TSRP accounting section.

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Project Cost by Category(M. and US$ Million)

X of FinalCost in

Appraisal Estimate Final Cost respect ofX of Z of Appraisal

M US$ Total M US$ Total Estimate

1. Construction 5.72 6.58 712 6.09 7.03 69% 107%

2. Furniture 0.54 0.62 6% 0.74 0.85 9X 138%

3. Equipnent 0.57 0.66 7% 0.73 0.84 8% 127%

4. Architectural,Engineering, andProcurement Services 0.20 0.23 3% 0.36 0.42 4% 183%

5. Technical Assistance 0.35 0.40 4% 0.20 0.23 2X 58%

6. Formative Evaluation 0.12 0.14 2% 0.10 0.12 1% 86%

7. Project Administration 0.57 0.66 7% 0.60 0.69 7% 105%

TOTAL 8.07 9.29 100% 8.82 10.09 100% 109%

Areas and Costs

5.03 Since the project intervention in the schools consisted only ofadditions to already existing facilities, unit areas and costs per studentplace cannot be determined. The architectural team of the TSRP made anaccurate reassessment of the areas required taking the areas established atthe time of appraisal as a guideline and increasing them in some cases, butmDstly reducing them without altering the educational objectives. Areaswhich were increased were those for classrooms, houses and of a workshopfor non-formal programs. The rest of the areas including those for otherworkshops, dining and kitchen, administration, hostels, laboratories, etc.were reduced. This reduction in areas partially offset the increase in

cost per square meter of construction largely due to the -late start ofthe project which greatly increased the imapct of the inflationary trendexperienced during the years of implementation. As shown in the tablesof paragraph 5.02 reduction in costs were made possible in some othercategories bringing the total project cost overrun to about US$900,000equivalent or a modest 9.7% of the original estimate, including taxes.

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Disbursements

5.04 The estimated and actual disbursements are sumarized on page 'i"of the Key Project Data. A comparison of the original allocations andfinnl disbursements of the Credit proceeds by category is also shown onpage "ii" of the Key Project Data. The Credit Closing Date was postponedfrom December 31, 1981 to December 31, 1982, and the credit was fullydisbursed with the final disbursement taking place on April 14, 1982.Payments to civil works contractor, however, continued using localcounterpart funds until works were fully completed just prior to theDecember 31, 1982 Closing Date.

Vt. PROJECT OPERATING OUTCOME

The National Curriculum Development Center

6.01 The objective of this component was to centralize, strengthen andintegrate primary and secondary curriculum development activities. Thisinvolved the furnishing and equipping of a new curriculum developmentcenter. The NCDC would provide offices for the curriculum developmentcareer guidance, educational radio, the primary examination and theeducatiou statistic units. The project also identified 240 man-months oftechnical assistance and 138 man-months of fellowships to be provided byvarious bilat=ral aid agencies. In addition, to alleviate the housingshortage in Maseru and enable the Government to recruit the abovespecialists needed, 10 modest staff houses were provided.

6.02 To facilitate the cooperation between the NCDC and TSRP staffs,their facilities were integrated within one building. The radio studio wasnot needed since one was constructed at LDTC by USAID and the LesothoBroadcasting studios were expanded through aid from ODA. NCDC is equippedwith locally manufactured furniture of good quality. All the officefacilities provided except the offices for career guidance are being usedfor their planned purposes. The career guidance offices which had beenused are temporarily vacant while MOE awaits the return of trainees who arestudying overseas. The centralization of NCDC staff has enhanced theproduction of new Sesotho, English, Mathematics and Social Studiessyllabi.

6.03 The Government was only able to obtain from bilateral sources 115mm out of the 240 mm of technical assistance estimated for the properlaunching of the NCDC and thus had to adjust its objectives. The aim ofsupplying textbooks to the students was retained but instead of developingtheir own textbooks immediately, a task which would have bee-a impossible

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without the T.A., they decided to purchase 1,900,000 existing books whichwere the most closely related to their new syllabi. This modified approachin fact is placing books into the hands of the children sooner (1983-84,with funding from the Third Education Project) and is enabling the NCDCstaff to learn the appropriate skills of textbook adaptation and writingwhile working on units to supplement the selected books rather than onentire books. The MOE officials now recognize that the approach appliedwas more economical and will have an impact on the quality of educationearlier than if the initial approach had been retained.

6.04 Basically the objectives of the NCDC components were achievedwith the exception of the establishment of the Education BroadcastingCouncil. This was delayed because of a lack of interest by the Ministriesinvolved (Information and Broadcasting, Agriculture and Education), whichare to coordinate all the country's education broadcasting. At the time ofthe completion mission, efforts were still being made to assess theconsultant's Education Radio Report in order to better coordinate educationradio activities with Radio Lesotho.

Expansion of Technical Education Facilities

6.05 This component was to provide additional facilities at two uppersecondary level technical schools, the Leloaleng Trades School and theTechnical School of Leribe to enable them to increase enrollments andexpand the programs offered. The improved facilities would enable theschools to respond better to identified manpower shortages while improvingthe institutions efficiency and cost effectiveness. The folloving tablesummarizes the schools' programs and enrollments:

- 24 -

Existing prior Planned atto Appraisal Appraisal Actual

InstitutionsEnroll. Enroll- Enroll.

Courses (1976) Courses ment Courses (1983)

Leloaleng Carpentry 22 Carpentry 32 Carpentry 61Trade Leatherwork 7 Leatherwork 15 Leatherwork 14School Motor Motor Motor(LTS) Mechanic 26 Mechanic 24 Mechanic 36

55 Construction 24 Construction 3895 149

Technical Motor Motor MotorSchool of Mechanic 28 Mechanic 30 Mechanic 26Leribe Metalwork 16 Metalwork 20 Metalwork 14(TSL) Masonery 16 Masonery 20 Masonery 20

Carpentry 30 Carpentry 30 Carpentry 28Electricity 20 Electricity 15 *

l 90 120 103

- Electricity course was offered and enrolled about 15 students from 1979to 19B1. Due to the lack of a qualified teacher, the course was notoffered during 1981-82. In July 1983, a qualified Basotho teacher isreturning from training in Germany and the course will again be offered.

6.06 Essentially, all the proposed physical facilities have been builtand courses have been introduced at the mission owned schools. It isimportant to note that the Leribe facilities were built by the studentsunder the guidance of the instructors. Leloaleng's enrollments greatlyexceeded expectations while those at Leribe's fell short of the objectivesince the school experienced serious management and financial problemsfollowing the departure of its principal. During the completion mission,the management problems of the school were being resolved and it wasexpected that by January 1984 the enrollment forecasted at the time ofappraisal would be reached.

6.07 The use factor of facilities provided was estimated at about 9OZat the Technical School of Leribe and about 94% at the Leloaleng TradeSchool. Both schools have organized work forces made up of students.These work forces bid for house construction, roofing, masonry andfurniture contracts in the local communities, giving the studentssupervised practical experience. TSL also operates furniture and metal

- 25 -

production centers where students can work and earn their tuition andup-keep. Adult committees were established at both schools and shortweek-end and holiday courses have been offered to adults. The adultprogram has been particularly successful at Leloaleng where about ten suchcourses were offered during 1982 to about 120 participants. Fewer courseswere offered at TSL and, due to the management problems, no courses wereoffered during 1982.

6.08 The MDE officials indicated that during 1982, over 90X of LTS and96% of the TSL students passed the trade certificate at their firstsitting. The administration of the schools also indicated that during 1981and 1982, 100% of their graduates found jobs either in Lesotho or in theRSA. The mechanical and electrical graduates from TSL were in particularlygreat demand.

Trade Testing

6.09 The trade testing system was re-organized within the LaborDepartment and the project provided it with the office equipment, vehicles,trade testing equipment and materials necessary to run the trade tests.This component ran into problems in 1979 when the Department of Laborstopped providing office space to trade testing staff who eventuallyobtained office space at LTI where the majority of the trade tests aregiven.

6.10 A one month fellowship was used by the trade testing director tovisit trade testing centers in Malawi and Zambia. The internationalspecialist in trade testing was never recruited because expatriate andBasotho instructors at LTI undertook the task of organizing and supervisingtrade testing activities. The supervision was good while these expertswere in the country but, unfortunately deteriorated following theirdeparture. This issue was discussed by the last two Bank Group supervisionmissions and the Government is aware of the problem. A technical educationspecialist (supplied by Commonwealth Fund) has been asked to review withthe assistance of ILO consultants, the best way to improve the efficiencyand quality of the trade tests. A report is expected by aid 1984.

Improvement of Secondary Education

6.11 This component was to provide buildings, furniture and equipmentrequired to introduce pre-vocational subjects, basically elementarytechnology (woodwork, metalwork and drafting), home economics, commercialsubjects, development studies and agriculture. The program also providedthe schools with the needed classrooms, laboratories, library and diningfacilities to enable them to expand their enrollments and improve thequality of education. To assist with the recruitment of teachers and dueto the rural location of the schools, a limited number of staff houses andstudent boarding places were also included.

- 26 -

6.12 The facilities included in the project were to expand the totalstudent places at the eleven project schools from about 4,000 to 8,000.The actual growth of enrollment was 60X of the objective set Which issomewhat below the target. This will be further reviewed by future BankGroup education missions. These enrollments, the introduction of theproposed courses and the utilization of the facilities are summarized inthe following chart.

Sary of Secondary School Enrollment, Practical Courses Offered end Utilisetion of Faeilitles

INROLLHNDT PLACTICAL STUDIeS I UTILIZATIONSCHOOLS

Total Total I Plan Expected Total X Plan Courses Courses TotalPlan- Jan. Jan. 2nd growth enroll- achieved Courses offered Offered Z of Class- Elem. Home Co_erce/ Schoolned 1982 1983 Year 1984 ment 3rd year I/ Planned Jan.'82 Jan.'83 Plan rooms Labe Tech. Agric. EConow. Typing Average

1. Hlotee 800 369 400 502 40 440 55X 4 2 3 752 602 80X 40X 202 402 402 402

2. St. Agi,es 800 361 399 502 40 539 672 4 1 3 752 "952 370S 3402 I202 2202 1 0S 412

3. Bereng 800 409 507 63X 60 567 71S 4 2 4 1002 902 90S 401 202 402 1001 63X

4. HeAitiee 800 411 416 522 40 456 571 4 2 4 I00 16802 4802 3401 I60 2301 401 552

5. Paray 360 146 191 532 30 221 612 4 1 3 752 902 250S 1402 1002 I20SZ ° 0S10 2 1 0 1 1 *e

6. St. James 360 253 279 782 40 319 892 4 2 2 502 952 50S 402 40S 6211Is 4 3 0 0 1

7. OT. Klng 800 422 452 57X 30 482 602 2 2 2 1002 901 8O0 602 604 731

8. lutha Sithe 800 450 467 58X 20 487 612 4 3 3 752 802 852 802 1 402 O2 58S

9. St. Stephen 800 348 358 452 60 407 51X 4 2 2 501 802 40X 502 20S 01 321

10. Sacred Heart J00 408 410 SIX 30 438 55S 2 2 2 1001 152 80X 360X ° ° 801 781

11. Lesotho H.S. 800 415 417 52X 30 445 562 4 3 3 751 901 8O0 50X 202 402 562

TOTAL 7920 3992 4296 552 420 4716 602 40 22 31 7822 54852 3$721 2492 442 a282 402 6

The estimated number of student places (about 800 per school) were arrived at by lO8 without sufficient consultation with theowners of the schools (Kisalona) and an analysis of the shortage of teachers. The low enrollments are short term and as aresult of dialogue between the Coverment and the siasion these will be increaued once the teachers are available.Further enrollment Increues are expected in 1985. This chart represents the situation at the time of complelion and not whtis expected to occur.

2/ All the proposed courses are expected to be implemented in 1984.

-28 -

Enrollment in the practical subjects in 1983 were elementary technology,1,946; agriculture, 1,164; home-economics, 860; and commerce, 1,613, for atotal of 5,583. In addition, the MOE officials expect that the enrol3mentsin elementary technology, agriculture and home-economics will increase byabout 25Z and commerce by 8% in January 1984, the third year of programexpansion.

6.13 The introduction of practical subjects in Lesotho has beenhampered by a lack of clear policy guidelines at the secondary level.Until the Education Sector Survey published in November 19821/, no clearguidelines listing responsibilities and program content existed. This lackof guidelines resulted in each school introducing the practical subjects inthe manner best understood by its staff. There was no conformity In thetime-tabling with schools allowing for the practical courses anywhere fromone to three hours per practical course. The biggest problem resulted fromthe lack of change in the number of core subjects the students had to writeto pass the JC examinations. Since the MDE examination requirements wereleft unchanged, each school had to continue to teach all the subjects andadd the practical subjects. To cope with the add-on subjects, the schools'only choice was to extend the length of the school day. The varied timeallocations to practical subjects also had negative effects on thepractical subjects examination results which to date have been weak rangingin the mid 50 percentile . The above problems combined with difficultiesin recruiting the required number of expatriate teachers for the program(14 were recruited instead of 20) and delays for practical subjects at NTTCresulted in only about one third of practical courses being introducedduring the first year of implementation in 1982. The evaluation consultantemployed in late 1980 visited the schools in 1981 and identified the abovelisted problems. To resolve these problems, five seminars for principalswere organized (two in 1981 and 1982 and one in 1983) to review and teachtime-tabling, assess the staffing issues and the number of courses e schoclcould logically teach and improve administrative procedures. Theseseminars improved the dialogue between schools and greatly influenced thecontent of the secondary education policy adopted in the Education SectorSurvey. The seminars attended bv the Church Secretaries of Education alsohelped the MOE officials better understand the problems faced by theschools. Both the MOE and church. officials indicated to the completionmission that they expected that by January 1984 all the proposed practicalcourses would be in operation and that efforts would be made to increaseenrollments. Schools are expected to reach an enrollment of about 600students rather than 800, as originally estimated.

1/ Comprehensive report prepared and approved by the Government, reviewingthe role of education in Lesotho and setting forth objectives for thesector for the years 1983 to 2000.

- 29-

6.14 The JC exam results (locally marked on a curve) in the projectschools for 1982 were first class pass 11%, second class pass 45%, thirdclass pass 32% and failure 12%. The pass rates were slightly higher (about10%) and repetition lower than the national average of over 20%. In spiteof the many problems encountered, the major inputs of facilities, equipmentand furniture provided under the project have benefitted the studentsattending the project schools.

6.15 As stated in para 4.16, some shortcomings in the supply ofequipment has been experienced causing delays in the introduction of acourse or affecting the efficient teaching of others. Until these problemsare resolved, maximum efficient use of all the facilities provided will notbe possible. It is recommended that supplementary equipment be included inthe forthcoming Fourth Education Project.

Assistance to Teacher Training

6.16 The project included renovation of workshop facilities at LTI,purchase of equipment, construction of staff houses, provision offellowships and purchase of a bus for teacher training all of which wereachieved by project completion. The supply of equipment for the trainingof elementary technology teachers was particularly successful. Withsupplementary technical assistance, and equipment and funds for facili:yrenovations supplied by the Irish Government an excellent elementarytechnology program was established at NTTC. The program trained 11trainees in 1981; 10 in 1982 and 12 in 1983. The trainees have all beenable to find employment in the schools with the result that the secondaryschools offering elementary technology should all have qualifiedBasotho teachers by 1985. Future trainees will satisfy proposed expansionof the program and cover teacher attrition.

6.17 The project included fellowship funds to assist the Governmentrecruit and upgrade at NtL 55 Basotho teacher educators from NTTC and MOEinspectorate. Since the special teacher/inspector program and fellowshipsat NUL were financed by UNDP, the Bank Group financed fellowships were usedto train qualified technicians as elementary technology teachers. The BankGroup financed fellowships were used to train 39 such teachers at NTTC.The Irish Government is continuing to support the program and fellowshipssupport at NTTC.

Evaluation

6.18 The two man-years of technical assistance to evaluate theintroduction of practical subjects at the secondary level included in theproject were fully used. Due to delays in recruitment, the evaluationspecialist only arrived in Lesotho late in 1980. The evaluator was able toassist MOE review the implementation of the practical subjects. He alsoassisted the MOE in training the secondary principals, but his main

- 30 -

contribution was his guidance to MOE for the development of administrativepolicies leading towards a more efficient use of secondary schoolfacilities and staff (para. 6.13). The evaluator submitted a mid-yearreport and a final report in May 1982. The evaluator also helped the MOEprepare the Government's completion report on the Second EducationProject. That report was submitted to the Bank Group in June 1982. Theevaluator's performance was good and beneficial to the education system ofLesotho.

6.19 As outlined in Annex 5, and para. 4.20, pre-investment funds wereused for the funding of a radio survey, tracer study, a primary schoolpilot project, the purchase of computer equipment, and the preparation ofthe Third Education Project, which became effective September 9, 1981.These funds were utilized after review by the Bank Group and werebeneficial to the successful implementation of education programs.

Non-Formal Education Program

6.20 About US$12,000 of the Credit funds were allocated for adultnon-formal education programs in crafts and work skills. The courses weretaught in the facilities for practical courses supplied at the secondaryschools. This Outreach Program supplied the Peace Corps volunteers withtransport (motorcycles) and basic lodging needs (furniture, stove, etc.)and start-up funds for small self-help projects. Six Peace Corpsvolunteers initiated about twelve training programs such as a knittingcourse, saddle repair, agricultural seminars and building courses, andassisted with the funding of small projects such as rabbit and poultryraising and fish ponds. Primarily due to the lack of funds and manpower toreplace the Peace Corps volunteers, the program came to an end once thevolvsnteers left the country. All project funds for this component werefully utilized. The program was enthusiastically received by thecommunities, assisted with interministerial exchanges and ran good coursesbut, since the MOE was unable to obtain either the teaching staff or fundsto cover the operation, its activities ended in 1981. The LDTC is nowtrying to revive the successful program with USAID assistance.

Female Participation

6.21 Female participation in the project institutions is estimated atabout 1l% at the technical schools; about 60% in the secondary lichools;about 50% in the elementary technology teacher training program; and wasover 70% in the Outreach Program. The programs developLi by NCDC willaffect the instruction of all the students among which girls account forare about 57% at the primary level and 60% at the secondary level.

- 31- ANNEX 1LESOTHO

SECOND EDUCATION PROJECTCREDIT 748-LSO

COMPLETIOU REPORT

COST OF PEYSICAL FACILITIESCivil Works

(in Maloti and USS OU's)(Rate of Exchange HI - US*1.1549)

Project Items Civil lorksZ of FinalCost in

Appraisal Contract Final Cost respect ofEstimate Sum, H. H. US; Appraisal

M. Estimate

A 1 National CurriculumDevelopment Center 292.145

2 TSRP Office Accommndation 75.873

Sub-Total A 368.018 273.636 318.634 367.990 87%

B Techntcal Education

1 L..loaleng T.S. 280.422 278.200 320.447 370.0842 Leribe T.S. -212.381 163.955 153.291 177.036

Sub-Total 492.803 442.155 473.738 547.120 96%

C Curriculum Diversification

I Hlotse H.S. 556.374 559.663 574.725 663.75U2 St. Agnes H.S. 533.855 460.254 525.024 606.3503 Bereng U.S. 538.728 529.143 547.019 631.7524 Masitise H.S. 783.599 718.669 755.356 872.3615 Paray J.S.S. 912.847 993.148 1,072.400 1,238.5156 St. James J.S.S. 653.521 653.521 555.825 641.9227 Christ the King H.S. 268.894 257.761 125.163 144.5748 Butha-Buthe H.S. 69.209 76.054 65.653 75.8239 St. Stephens H.S. 40.806 33.525 29.945 34.58310 Sacred Heart H.S. 75.130 53.907 43.948 50.75611 Lesotho H.S. 43.414 41.370 37.145 42.899

Electrical connectionsand additional works - - 220.000 254.0?8 -

Sub-Total 4,476.377 4,377.015 4,552.223 5,257.363 102%

D LTI Workshop 21.599 12.547 22.666 26.177 105Z

E Staff Rouses

I NCDC (10) 195.b802 LA C t2) 66.7753 Trade Testing (1) 32.6634 Project Administration (2) 65.326

Sub-Total 360.444 724.788 724.788 837.058 201Z

TOTAL (A to E) 5,719.241 5,U30.141 6,092.049 7,035.708 107Z

- 32 -

AYNEX 2LESOTHO

SECO3ID EDUCLION PROJECrCREDIT 748-LSQ

COMPLETION REPORT

Cost of Physical Facilities Purniture and Equipment(m 000's)

Spent Appraisal Difference IncreaseInstitution Furniture Equipment Total Estimate (+ o -) Decrease

1. Curriculum Development

a) NCDC 66,147 103,132 169,279 136,870 + 32,409 + 23Xb) 3CDC houses 29,260 - 29,260 23,320 + 5,940 + 26Z

2. Technical Schools

a) Leloaleng Trades School 106,059 29,621 135,680 bO,719 * 74,961 +122Sb) Leribe Technical School 24,596 27,546 52,142 44,021 + 8,121 + 182

3. Curricul-um Diversification

a) Hlotse High School 59,524 70,857 130,381 136,240 - 5,859 - 42b) St. Agnes Hlgh School 82,822 70,600 153,422 123,460 + 29,962 + 24Xc) Bereng High School 59,223 7U,095 129,318 119,400 + 9,918 + 82d) Masiise High School 110,820 70,531 181,351 141,570 + 39,781 + 28Xe) Paray Secondary School 86,798 53,583 140,381 102,4b0 1 37,921 + 37Xf) St. James Secondary School 45,406 75,297 120,703 74,380 1 46,323 + 62Zg) Carist The King H.S. 40,056 50,527 90,583 67,420 + 23,163 + 342h) Butha-Buthe high School 11,136 7,136 18,272 10,120 + 8,152 + 80Xi) St. Stephens High School 10,437 6,037 16,474 6,200 t 10,274 +166ZJ) Sacred Heart High School 13,746 9,237 22,983 17,450 + 5,533 + 35Zk) Lesotho High School 6,464 4,802 11,266 8,980 + 2,286 + 33Z

Sub-Total 526,432 488,702 1,015,134 807,680 +207,454 + 26Z

4. Trade Testing Center 6,068 14,335 20,403 17,330 + 3,073 + 11X

5. Project Administration 1,300 13,000 14,300 12,910 + 1,390 + 8Z

b. Community Outreach Program 2,802 2,898 5,700 12,000 - 6,300 - 48X

7. Teacher Training

a) National TeacherTraining College - 41,885

b) Lerotholi TechnicalInstitute - 11,737 53,622 33,270 + 20,352 + 60X

c) Lesotho Agricultural;College Nil a/ Nll Nil 4,664 - 4,664 -10ux

GRAND TOTAL 743,840 732,856 1,479,696 1,152,784 +323,912 + 215

a/ Two staff houses were not built.

Source: Project Implementation Unit (PIU) and hank Staff.

LESOTrOSZOOND EDUCATION PROJECT

IMPLEMENrATION SCHIDULE

1977 1978 1979 1980 1981 1982

Iuple..ntation I a 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4

Vocational 6 Sscondar Sehool.(Lowland) and Pro1eet Office

Prep, sketch plane IDA reviev AppreLaal DDD DDD DDDActual DDD DDD DDD PDD

Working drawings A pre-tender Appraisal DID DDDActual DDD DDD DDD DDD DDD WDO

Tender & contract award Appraisal 000 000 000Actual 000 000 000 000 000

Construction Appraisal XXX XXX XXX WX xxx OX XXX XXX XXXActual XXX XXX x XXX xx mI in HZ xxx

Seconder, Schools (lountain)

Prep. sketch plans b IDA review Appraisal DDD DDDActual DDD DOD DD DDD

Working drawings a pre-tender Appraissl DDD ODDActual DDD DDD DOD DDD DDD DWD ODD DW D

Contract negotiations 6 IDAreviev Appraisal 000 000

Actual 000 000000 000 W

Conatruction Appraisal XXDX XXX XXX XXX XXX XX xlX UIx XXXActual Kx xxx xxx mM XZ IR XmX mm

Currlculuv Center

Prep. sketch plans & XDA review Appraisal DDD DDDA:tual DDDD DD DD0 DD

Worklng drawings a pre-tender Appraisal WDO DDDActual DDD DDD DDD DDD DDD

Tender & contract award Appraisal 000Actual 000

Construction Appraisal HXZ HxZ HZx HXIX XXX HZ HZxActual XXX HZ HZ xH

Equipment a furniture

Preparatlon of llets Appralsal DDD DDD DDDActual DDD DM DDD MD DDD

Tender 8 award Appraisal 000 000 000 000Actuel 000 000 000 000 000

Delivery period Appraisal FP1 PFP PPP FPP FIPActual PPP IPP PPP Fm P"

Technical Asssltance

quantity Surveyor Appraisal qqQ qqq qqq qQq QQQ Qqq qqq qqq QQQActual qq qqq °QO ,°W °.° QQ Q W Q qq qqqOQQ QQqqq qqqq qq q qqqq q° qq q

Architect Appraisal XXX KKK KKK KKX K X KK X KKK X KKK KKK KK KActual KKI X KKK KKK IUX KKK IW K KXK KKK KKK KKK KK KK IKK mX KU OX mKK

- 34 -

ANNEX 4LESOTHO Page 1 of 3

SECOND EDUCATION PROJECTCREDIT 748-LSO

STATUS OF COVENANTS OF THE CREDIT AGREEMENT

COMPLIANCE TO CREDIT CO(NDITIONS

CEFEIENCECOVENAihS/OBLIGATIONS IN CREDIT

DATE DUE TO BE MET BY BORROWEk AGREEMENT ACTONS, REMARKS AND STATUS

Continuously Provide staff and funds for 3.01 Covenant met.appropriate administrative,financial, and technicaloperation of the project.

Continuously Establish and maintain an 3.02 (a) During the first two yearsarchitectural team (two project implementation was slowarchitects, a quantity and the architectural team, whichsurveyor, two architectural was still being organized, recel-technicians, two construction ved contradictory instructlonssupervisors, engineering from the new TSRP directions andconsultants, and other HCE. In addition the architectsupporting staff as had to withdraw because ofrequired). illness. By the end of 1980, the

team was entirely replaced andprogress began to be realized.Two full time architects and aexpatriate building supervisorwere seconded from MOW and a thirdprivately employed. Seven Basothoarchitectural technicians were onthe team. Covenant met.

Continuously Locate architectural team at 3.U2 (b) The MOW did participate actively,the Ministry of Works (MOW). particularly during the last three

years in the design and tenderphase of the project through theprovision of its technical'servi-ces. The speedy implementation ofthe architectural componentsduring the last three yearsresulted from the efflcient workof the architectural teamseconded to the TSRP. The MOEretained control of all thetechnical aspects of the project.Since the work was prepared andsupervised by architects from theMOW, it did not experlence revlewdelays other projects often sufferfrom in Lesotho. Covenant met.

- 35 -ARNEX 4Page 2 of 3

REFERENCECDVENANTS/OBLIGATIONS IN CREDIT

DATE DUE TO BE MET GY nORDIWE& AGREEMENT ACTIONS, REMARKS AN) STATUS

As needed Employ consultants for 3.03 (a) The hiring of an engineer andengineering and quantity quantity surveyor as proposed atsurveying. the time of appraisal proved to be

too difficult and costly. Insteadlocal consultants were employedand their performance wassatisfactory. Covenant met.

b/30/78 Employ evaluation specilalists. 3.03 (b) An evaluation coasultant wasemployed at the end of 1980 (thirdyear of project implementation).He submitted, on October 2, 1981,a Formative Evaluation ProgressReport and, on May 27, 1982, aCompletion Report entitled 'PhaseI and Phase II Training For SelfReliance Project Evaluation". Thecovenant was met during the lasttwo years of Credit. The servicesof the same evaluator are beingcontinued under the ThirdEducation Project.

Promptly as Obtain technical assistanceneeded for project institutions as

follows:

a. National Curriculum a. About 115 man-months ofDevelopment Center, 10 consultants services were obtainedspecialists; for the NCDC (48% objective

achieved);b. Technical Schools, 15 b. Six teachers obtained atteachers; Leribe and seven at Leloaleng from

W. Germany Technical Assistance,Danida and Peace Corps (87X ofobjective achieved);

c. Lesotho Agricultural c. Five teachers instead of twoCollege, 2 teachers; proposed were obtained from the

British Council (250Z objectiveachieved);

d. Secondary Schools, 29 d. Twenty-one teachers obtainedteachers; and from Peace Corps, World University

Service of Canada, IVS and W.Germany Technical Assistance (72X

e. Trade Testing Center, 1 of objective achieved);specialist. e. No specialist was employed

because three specialistswere supplied by the British HighCommission to LTI for theTechnician Training program whowere able to assist LTI organizingthe Trade Testing Unit.Covenant met.

- 36 -ANNEX 4Page 3 of 3

REFERENCECOVENANTS/OBLIGATIONS IN CREDIT

7E DUE TO BE MET BY OMOKJOWER AGELEMENT ACTIONS, REMARKS AND STATUS

soon as Acquire insurance coverage for 3.05 (a) The proposed insurance contract*sible imported goods and for the was signed on August 1, 1979.

transport and delivery thereof Covenant met.

Ar all Provide plans, specifications, 3.06 (a) Plans, specifications, tendereimes contracts and procurement documentation and implementation

schedules to the Association. schedules were timely forwarded toIDA for review. Covenant met.

At all Maintain appropriate and 3.06 (b) Satisfactory civil works recorastimes adequate records. were continuously updated by the

architects, while the procurementofficer's control over furnitureand equipment lists and data wasweak and needed more coordinationwith the accounts division. PIUwas advised to better coordinatethe architectural procurement andaccounts section. Someimprovements were beingexperienced at the end of theproject. Covenant met.

Promptly as Acquire land and the rights 3.07 Covenant met.needed thereto in respect to the

project.

By September Have the Project Unit's 4.01 (b) The Government during the project30 of each records audited annually. implementation supplied yearlyyear audit reports. Covenant met.

As soon as Acquire general insurance. 4.02 Covenant met (para. 3.05 (a)).possible

From time Review the service conditions 4.04 Reviews of all technical andto time of teachers of pre-vocational vocational teachers' salaries were

subjects. made in April 1980 and 1982.Covenant met.

6/30/78 Establish a permanent advisory Advisory coomittees have beencommittee at the technical established at both schools.schools of Leribe and Covenant met.Leloaleng to determineeducational programs foradults.

3/31/78 Establish a council for 4.06 Issue discussed with Centraleducational broadcasting. Planning, MOE, MUI and Ministry of

Information and Broadcast.Council is being established.Covenant being met.

LeSOTHO

SECOND EDUCATION PROJECT(Cr. 748-LSO)

fIM INDICATORS

PLANNED ACIUALAT APPRAISAL INPLININTATION

eDUCATION PROJECT TARGETS START / CONPLE- TARGET START CONPLE-

INDICATOR PROJECT ITEH AT APPRAISAL TION REVISION ?ION r 9FINAL SUPERVISION

I. Provision All the institutions - Preparation of lists, 031/7 10/71 I8PP did not. 02180 01/811 r delivery of furniture aod

of equip- - Tender period and awards, 08/78 10/79 work on list 02/81 11/81 equipment was coupleted at Leribe

ment and - Delivery of goods, 12/78 10/80 during first 09/81 02/83 So tei ufradu

reatlon. Center, National Teacher TrainingCollege Trade Testing Centera, ndeleven secordary schools in February1983. Generally satisfactoryfurniture ono equipmat at the aboveinstLtution except that at thesecondary schools somue over-sophisticated, unneeded or ovrsupply of equipment are beilngexchanged and replaced by more handtools where shortages ware beligexperienced.

Expert Consultants W-J

Nusb r ofi2, Provision a) National Curriculum ) People Nan-Kanthe 01/79 12/81 a) onCly 09/79 12/82 a) light short con5ultafcies equtv-

of tech- Development Center- short-term slant to about 16 man-month were

nical as- (NCDC) proposed 10 240 technical supplisd to NCDC by the British

esistance. actual 3 115 assistance Council (IC) and 3 man-month bywas supplied USAID. At the time of mission, theat NCDC. HOE and the IC had finalising the

supply of three instructors for twoyears each (1983-84).

b) Teacher Training b) Fellowships per b) Fellow- 01/79 12/82 b) The special teacher training

Individual: ships were to program at NUL was picked-up by UIIDP.

About NAn-Monthe be supplied Subsequently, the fellowships for

- ..... for NTTC in- NSTC tnternshiv supervisors and

ternship education officers were covered by

proposed 6 mos. 138 supervisors that program. The 55 local fellow-

actual 10 mos. 390 and education ships were used instead to fund

officers at the tratning costs of 39 slemantary .

Obtain teaching staff KUL. technology teachers being trained w

for practical subjects at NTTC.

c) For NRTTC staff were obtained fromc) Teachers DANIDA (48 _), Peace Corps (24 m),

Nuaber Man-Months ODA (12 _) and Irish Goverment

proposed not specifTied (166 _) for a total 250 _ of which

actual 7 178 178 on were used for practical subjects,

PLANNED ACTUALAT APPRAISAL D SULMWION

EDUCATION PDJBCT TARGJTS START / COMPLZ- TAlBST STAtT / COMPIL-INDICATOR PROJECr ITEM AT APPRAISAL YIOH DIISION TION FINDINGS rJimL SUPKVsIOU

Teachers T"che=s TSehaere Techntcal Assistaca SaDplied

c) Technical Schools. c) Number Man-Months c) Three by DAKIDA, tbree by theropoise 1~360 01/|1 12/83 01/60 1982 R*public of Ger my, three by the

actual 13 348 01/80 onging 01/60 ongoing Mwa, aed four by ftsa Corpswerea obtained with servicecoatiwinugg.

Fellowships Fellwhis Rpubitc of Gruny hs upplied17 fellosbips, USD 2, and the

About tMan-Months Irlsh Covermt 2, for a totalpropose" 2f 1978 1965 of 21 fellouhlp.actual 21 384 1979 1984

Teachers Pellowmhit

d) Lesotho Agricultural d) Number Nan-Iontha *) Five agriculturai specialistsCollegs ~~~~~~~~~~~~~~~~~~~~~~are being supplied by O5*S.

proposed 2 48 1980 1982actual 5 120

F llovships

About Mon-monthsproposeT TW 1960 1934 Four fellomhILpe for Dsaotbsactual 4 48 t1ecbers at LAC are being sapplied

by Iritish 11gb cm1sson..

Advisor

e) Trade Testing e ) Musber Man-Monthsa No ten l t a

proposod 2 24 03/80 12/81 recruited b*tasne L.A. staffactual - - at L.T.I. did the work - a

part-tim baie. Guver_tsfelt tbere wsmm asee to

duplicate the persoml.

helloshios

About Mom-Montha

proposed 24 woe. 48 08/80 12/81 The director of the Trade TeStingactual 1 in. 1Costr visited moch centers io

Malawi sad Zaoia bet. becsuee of9he limited bnmimdgs uaqalmeddueties these visits, end the hkighcosts of such vits, so furthervisits mrs undertaehn.

f) Seondary Schols T ears f) T.A. at th project sc_mols e

i) Mosbsr HS-Noths suppunli bj 0. bine. Cmp., andpreop'w- - 1979 1932 Nest Gaeasy bank M Belt"&

.Actual 6 144

PLAiflID ACWALAT APPRISAL DIPLENENTATION

EDUCATtON PROJECT TARGETS START / COMPL- TuErT START / CONPIX-INDICATOR PROJECT ITEH AT APPRAISAL TION REVISION TION FINDINGS FINL SUPERVISION

3. Studies. Pre-investment To be determined: 03/78 10/82 03/80 09/?'2 The utilization of the H200,000studies. Funds US$200,000 allocated for pre-investsmat funds

i.:

- Purchase of ComputerEquipment H75,700.

- Radio Survey 30,900.- Primary Pilot Project 14,000.- Architect Consultant 1,500.- Tracer Study 9,900.- Preparation of Third

Project 1.o500.

Total N147,S60.

The balance of H52,200 wasueed to cover coat overruna in thecivil works and equipment areas.

A. Project Training for Self To coordinate the implement- Unit aeta- Durtng the first two years ofadministra- Reliance Project. ation of the physical facil- blished In impleewntation ineufficient effortstion. ttits, check the use of 1975 to manAge were made by TSIE to expedite the

funds, keeping of adequate Firt Education ispleentation. Followin, a change Inrecords and efficient use Project was also 1980 of the director and procurementof the project mployee. reesponsible for officer thi lmpleeatation pace we W

the Iaplemn- greatly improved and during the lasttation of the three yeare the Project Unit performedSecond Education well.Project.

5. Lvaluation. Evaluation of educa- Terms of Saterence to be 03/87 06/11 Evaluation 09/S0 05/El An evaluation epecialiet completed twotional progras determlied during laple- objectives progress reports, ad prepared a finalpromoted by the mentation. Two san-yeare for: report on the Introduction of practicalproject. for technical assistance. (a) eccondary subjects in May 1982.

divsraif ica-tion progr_; and(b) distant ateachingprogra. 'a

LESOTHO

SECOND EDUCATION PROJECT(Cr. 748-LSO)

Ministry of Education, Sporu and CulturOrgnizulon Chrt - 1983

C.~~~~~~~~~~~~ I-

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3/That m -Am dpWgm in Ca, d. Sum**. nud'wr.ti *ionlsdmpsun

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EW 'fflim M . p -

A-E.. Aauta6s EduCiton Of fmw1.0. Edvcion Off,.

L0 IC. LMIRO tvc THfAiiC0nWLT.I. LasATdw.icT IfsAiltAsMOO inrdsuy ofN.U.L NMionj Uanmeify of LiamacALT .T.C. asilTud 6*4uun C.lklAEO. kS.nr EjacUfan OffkwTR- Trmweq lot S| |Nl||.u'c PrsWs

Sousa: MOE dmdBak doff watidSwb - 22a

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LESOTHO

SECOND EDUCATION PROJECT(Cr. 748-LSO)

EDUCATIONAL PYRAMID, 1982

g .11 22 II s IJi Xu 111k 'I IM It I 2 1 119 12 12Q

115 1 22 1X3 IA 1 IY 11 u tI =my 2m' u

A *4 19 126 m 21

D Q15 .4. IIA74 162% 2SD6 | G |u2 IEIA3 144 AMt |A 9jr 14 ids a |

P 12 163 my 9 .2*

C It M? 15 Ii N?M

P .. % 11t 5 I 6 10 15 t 4, A 1

A 9 U 8 9S Uin mm 1 .9 E 9 ".9 IS

. 12 165 6482 06 14 _am 9 30m IU ¶61bho"m 561 d2AA £

. , ¶0 162 93M U,s 14,3

M 4*M 90 ¶68* I¶~ 1027I1-108 i m GmuA, 1131.1 mm 134dv an w d owoa ora pftbdr

t2 F&noo1 18) a() Y a

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- 42 -

CHART 3

LESOTHO

SECOND EDUCATION PROJECT(Cr. 748-LSO)

EDUCATION SYSTEM. 1983

ThS dAge 7 * 9 g 10 , , 12 13 U i si 1V7 i st t20 o D 0

ii i i i i 11. I I I I 1 I , 2 2 A S 6 7 a 9 10 11 12 13 12 id is is o 1? 20

PRIMARqY POSTM"IMAVtY (VOCATIONAU 14WiAAL P,, C

JUNIa sO DARV Uumio SECONDARY W U

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