(SE22-y -7 A goq ,, Document of

The World Bank

FOR OFFICIAL USE ONLY

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Report No. 9529-LSO

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STAFF APPRAISAL REPORT

KINGDOM OF LESOTHO

EDUCATION SECTOR DEVELOPMENT PROJECT

JUNE 19, 1991

Population and Human Resources DivisionSouthern Africa Department

This document has a restricted distribution and may be used by reipients only in the performance oftheir official duties. Its contents may not otherwise be disclosed without World Bank authorization.

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CURRENCY EQUIVALENTS(April 1991)

Currency Unit = Maloti (M)US$! - M2.7

Ml = US$0.37

FISCAL YEARS

IDA Fiscal Year = July 1 - June SOGovernment Fiscal Year = April 1 - March 30

ABBREVIATIONS AND ACRONYMS

AfDB African Development BankCEO Chief Education OfficerCOSC Cambridge Overseas School CertificateDRT District Resource TeacherDTVT Department of Technical and Vocational TrainingEC European CommunityECOL Examinations Council of LesothoESAF Extended Structural Adjus'_.int FacilityFRG Federal Republic of GermanyIDA International Development AssociationIMRC Instructional Materials Resource CentreJC Junior CertificateLDTC Lesotho Distance Teaching CentreLIET Lesotho In-service Education for TeachersLP Lerotholi PolytechnicMOE Ministry of EducationNCC National Curriculum CommitteeNCDC National Curriculum Development CentreNTTC National Teacher Training CollegeNUL National University of LesothoOED Operations Evaluation DepartmentODA Overseas Development AdministrationPCR Project Completion ReportPFP Policy Framework PaperPSLE Primary School Leaving ExaminationRSA Republic of South AfricaSEO Senior Education OfficerSSU School Supplies UnitTSC Teaching Service CommissionTSTC Thaba Tseka Skills Training CenterTVE Technical and Vocational TrainingUNDP United Nations Development ProgramUNICEF United Nations Children's FundWFP World Food Programme

FOR OFFCIAL USE ONLYKNG,DOK OP LESOTHO

EDUCATION SECTOR ADJUSTMENT PROJECT

STAFF APPRAISAL REPORT

Table of Contents

Title Page No.

Basic Data ...... * * * . .......................................................... iCredit and Project Summary ........................... ......... iiEstimated Costs and Financing P l a n .................................... iv

I. INTRODUCTION ..A. Economic Context ...... . ... 2B. Education in the National Deve.opment Strategy. 3

II. TEE EDUCATION AND TRAINING SECTOR .............................. 4A. Basic Characteristics of the Sector ...................... 5B. Priority Issues ................... ...... .. ................ 6C. Donor Involvement in the Education Sector . ............... 19D. Bank Role and Ass sstance Strategy ........... gy ............ 20

III. GOVERNMENT STRATEGY AND FIVE-YEAR ACTION PLAN .................. 22A. Sectoral Objectives and Expenditure Plan . ................ 22B. The Five-Year Sectoral Action Plan ....................... 25

IV. THE PROPOSED PROJECT ....... .............. ...................... 38A. Project Objectives and Summary Description .... ........... 38B. Detailed Features ........................................ 39

V. PROJECT COSTS, FINANCING AND IMPLEMENTATION ......... ........... 49A. Project Costs ................................. 49B. Project Financi ng ..................... .................. 52C. Hanagement and Implementation ............................ 53D. Procurement ..................... 55E. Disbursements .... ....... ............................ 58

VI. BENEFITS AND RISKS ............................................. 60

VII. AGREENTS TO BE REACHED AND I .CO).ENDATION ..... .... 61

This report Is based on the findings of an appraisal mission that visited Lesotho In March1991. Mission moemers ws'e Ms. Neeta Sirur (mission leader, task manager), Ms. Elizabeth Adu(counsel), Ms. Joan Cloffty (education planner), Mr. Leonardo Concepcion (seniorImplementation specialist), Mr. Vincent reaney (educator) Ms MUwkerem Mulatu (financialanalyst) and Mr. John Theakstono (higher education specialist): Lead Advisors for theproject are Mr. Peter Moock and Mr. Birgir Frdriksen. Mr. 0. de Ferranti and Mr. S. Denning:re the managing Division Chief and the Department Director, respectivoly for the operation.Th. report was written by Us. Neta Sirur, based on Inputs from mission mmbers. Ms. RhodoraMendoxa provided c*eretarial assistance.

This document has a restricted distribution and may be used by recipients only in the performanceof their offcial duties. Its contents may not othe:wise be disclosed without World Bank authorization.

A332S

Annex 1s Education Statistics ............................ 63-77

Tatle 1 Lesotho Education Enrollments by Level ......... 63Tables 2-7 Primary Education .............................. 64-69Tables 8-12 Secondary Education ............................ 70-74Tables 13-15 Post-Secondary EducatLon ....................... 75-77

Annex 2: Letter of Development Policy and Matrix ................ 78-88

Annex 3: Projected Educational Expenditures ..................... 89-90

Annex 4: Reorganization of Ministry of Education ................ 91-99

Annex 5: Proiect Cost ........................................... 100-107

Annex 6s Project Technical Assistance ........................... 108-113

Annex 7s Proiect Implementation Schedule ........................ 114-115

Annex 8s Disbursement Schedule ................................. 116

Annex 9s Project Supervision Plan ............................... 117-118

Annex 10: Documents Available in the Proiect File ..... .......... 119-122

Annex ll Monitoring and Evaluation ............................. 123-129

CHARTS

1. Structure of the Education System ........... .................. 1302. Ministry ef Education Organizational Structure ................ 1313. Proposed Reorganization of the Central MOE .................... 132

MAP

Lesotho - IBRD No. 23059

KINGDON OF LESOITOEDUCATION SICTOR DEVELOPIPNT PROJECT

B..sic Data

(All figures are for 1990 unless indicated otherwise)

Area ........................ . . .. .. .. .. . 30 * 000 sq kmGNP per capita . ......... .. $420 (1988)Population ...................... 1.7 millionAnnual population growth rate ............ 2.6 percentGross primary school enrolment ........... 116 percentPrimary completion rate .................. 51.7 percentPrimary repetition rate .................. 22 percentPrimary pupiltteacher ratio .....* .... .55:1Primary Pupilsclassroom ratio ............ 67:1Textbooks per primary student ............ 4.4 booksRatio girls:boys in primary school ....... 1.2slGross secondary school enrolment .. .... 24 percentSecondary pupil:teacher ratio ............ 21slRatio girls:boys in secondary school .....1 .5sl

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KINGDOM OF LESOTHO

EDUCATION SECTOR DEVELOPMENT PROJECT

Credit and Pro1ect Summary

Borrower; Kingdom of Lesotho

Beneficiary: Ministry of Education (MOE)

Amount: SDR 18.9 million (US$25.2 millioi equivalent)

Terms: Standard with 40 years maturity.

Project Obiectives

The main objective of the project is to assist Government in theimplementation of its five-year action plan for sectoral reform in education,as laid out in a letter of development policy and detailed matrix of specificobjectives and actions (Annex 2). Project support would focus on: (a)supporting investments aimed at increasing the quality, efficiency andrelevance of educational programs at all levels of the education system, with

a special focus on primary education, and (b) helping to address the keymanagement, financing and resource allocation, and staffing issues whichconstrain overall sectoral performance.

Project Description:

Within the framework of Government's policy/ac. won matrix and investmentplan, the project will support improvements in: (a) primary, byconstructing/furnishing additional classrooms first in the underservedhighlands and subsequently in Haseru and other lowlands areas, increasinginstructional materials, rationalizing the curriculum, improv_..g pupilassessment (both continuous assessment and the school leaving examination),recruiting additional teachers to prevent deterioration of already highpupil:teacher ratios, and supporting policies to directly increase internalefficiency by limiting enrollments of over- and under-age pupils and reducingrepetition; (b) secondary, by supporting efforts to rationalize allocation ofpublic resources to uneconomic schools and regulate opening of new ones,improving student assessment, and improving teaching by support to teachers in

the form of teachers' guides and in-service refresher training; (c) teachertraining, by expanding the output and quality of both the pre- and in-serviceteacher training programs and providing management support to the teachercollege; (d) technical and vocational education (TVE) by raising the qualityand cost-effectiveness of formal pre-service TVE through support forstandardization of curricula at craft level and introduction of eveningclasses at selected institutions and encour&ging involvement of employers inTVE through expansion of trade-testing capacity and policy studies; and (e)university, by assisting in implementation of cost-containment measures innon-teaching areas, introduction of a more coherent academic program,improvement of science and library facilities and support for facultyresearch. Project support for improvements in sectoral management will focus

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on supporting the reorganization and decentralization of the Ministry ofhducation (HOE), improving local level school management through schooladministrator training and establishment of a monitoring and evaluationsystem. Project conditionality is the main vehicle for addressing issues ofteachers' conditions of service and issues of sectoral financing, which arecritical to ensuring the productivity and sustainability of projectinvestments.

Benefits and Risks:

The project's main benefit is that it would assist in improving thequality of the educational system, thereby helping to increase studentachievement and maintainjimprove Basotho competitiveness in the regional labormarket. Through support for revision in education policy and resourceallocation patterns, the project would also help establish a sound base forfuture investments. Finally, the project's focus on development of a coherentsectoral plan would help achieve much-needed improvements in donorcoordination within the sector.

The project's principal risk is that with the coming of elections in1992, political candidates may promise further sectoral expansion, despite theneed for, and current Governmental coamitment to, consolidation during theFifth Plan period. To reduce this risk, the project would finance a well-targeted pt'blic awareness campaign to lncrease popular appreciation ofefficiency Issues. A second risk is that Government, given its fiscalausterity program, may not increase -'ucation budgetary allocations enough toallow timely implementation of the reform package. This risk is reduced bythe strong support for continued real growth in education spending articulatedin the Policy Framework Paper (PFP) as well as Government's stated commitmentto education.

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Prot ct Coat Summr, kx Prol Srt Cocn nt

Local Forelmn Total

A. BSIC EDUCATION1. Foclltti. 7.5 14.2 21.72. Curric i Instruc Materlsul 0.6 0.2 1.1S. Assesment 0.7 1.8 1.94. Professional Support 1.9 0.4 2.86 Efficien¢y 0.1 0.2 0.86. Teacher Recrultment 6.7 0.0 6.7Sub-total 1I7 Wa 81:i

B. TEACHER TRAINING1. NTTC Str.ngthUning/Output 2.8 8.9 6.22. Pr_-/In-orvice Troining 2.2 0.9 8.1Sub-total 7

C. TECH & VOC EDUCATION1. Quallty A Cost Effectiv.n.u 0.0 0.9 1.42. Skills Cert/Indust Trog 0.5 0.6 1.18. Policy Dovelopment 0.1 0.1 0.8Sub-total M. E

0. NATIONAL UNIV. OF LESOTHO1. Quality A Cost Containment 0.6 2.2 2.7

E. SECTORAL MANAGEMEfT1. Reorganization of MOE 8.9 2.7 6.62. Decentralization of MOE 1.2 2.8 8.68. Local Level School Mout 0.9 0.8 1.24. Monitoring A Evaluation 0.4 1.5 1.9Sub-total 11 11

F. PROJECT PREPARATION FACILITY 0.4 0.5 0.9

Total BASELINE COSTS 82.7 82.2 64.9Physical Contine nces l.4 -§ t.1Price Contingencies 2.6 2.7 5.6

Total PROJFCT COSTS 86.9 87.7 74.6

Financina Plan

Government f 16.9 1.4 20.8IDA 6.0 17.2 25.?USAID 9.0 16.9 24.9EC 1.0 8.2 4.2

TOTAL 86.9 87.7 74.6

Diebursement SchaduleIDA FISCAL YEAR

1992 1998 1994 1995 1996 1997

Amount Disbursed 2.5 8.6 4.6 4.6 6.6 4.8Cumulative Amount 2.5 6.8 10.6 16.4 20.9 26.2

Percentage of Total 10 25 48 61 68 100

Number my not add up exactly due to rounding.fi Include US18.4 million In taxes and duties.

KINGD OF LESOT3O

EDUCATION SECWOR DEIMLOPMENT PROJECT

I. INTRODUCTION

1.1 The Government of th.e Kingdom of Lesotho and donor agenciesare increasingly recognizing that, as the countr7's natural resourceendowment is severely limited, Lesotho must emphasize human resourcedevelopzaent as the key to sustainable, long-term economic growth. Assuch, the Government in recent years has opted to give very highpriority to the formulation and implementation of policies and programsto educate and train Basotho in a cost-effective manner for futureemployment at home and within the Southern Africa region. For example,the Government's Fourth Five Year Plan (covering the period 1985/86-1990/91) stressed the need to strengthen Lesothr's education andtraining system as the central element in a strategy for human resourcesdevelopment. This emphasis will continue and deepen in the 1ifth Planperiod (1991/92-1995/96), during which Government intends to undertake acomprehensive sectoral reform effort aimed, inter alia, at: (a)strengthening education management at central, district and institutionlevels; (b) increasing resources to the sector and rationalizingresource allocation among the various sub-sectors with a view toincreasing emphasis on primary education; and (c) improving the qualityand efficiency of education at all levels of the system, again, with anemphasis on primary education.

1.2 The proposed Education Sector Development Project wouldassist the Government in implementing its sectoral reform program,providing necessary financing for a number of the activities at primLary,secondary and post-secondary levels included in its fifth five-yeardevelopment plan. It would also lend support to the policy adjustmentprocess, to which the Government is firmly committed and which involvessome potentially difficult measures. Development of the project wasclosely linked to Government's own process for defining the educationelements of its fifth five-year plan, and involved intensiveconsultation and dialogue with Government and representatives ofrelevant non-governmental organizations (NGOs), in-depth analyses ofspecific technical problems, and broader reviews of management andfinancial needs. Moreover, discussion of education sectoral needs andproject emphases was systematically included in the macroeconomicdialogue between Government, the IMF and the Bank to ensure that theplanned education reform program and the Bank's support for it would beconsistent with broad macroeconomic (especially fiscal and publicexpenditure) objectives. Further details regarding education sectoralAims and project design are given in Chapters II, III and IV of thisreport. The remainder of this Introduction focuses on brieflydescribing Lesotho's overall economic environment and the country'sdevelopment strategy as it relates to the education sector.

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A. Rconomic Context

1.3 Lesotho, a small mountainous country surrounded by theRepublic of South Africa (RSA), possesses a very limited naturalresource base relative to its population of 1.7 million. Its modestdeposits of diamonds and coal are *ot economically exploitable atpresent and only about 12 percent of its land is cultivable due both tathe mountainous terrain and to the serious erosion of top-soils over thepast century. Agriculture thus accounts for only about 21 percent ofGDP although it remains the main occupation of about two-thirds ofL.esotho's labor force working within the country's borders. Anotherquarter of Basotho workers employed domestically are in the servicesector, wihich accounts for over half of the country's GDP. Thecountry's industrial base, though expanding in recent years, is stillquite modest, providing employment to the remainJng 10 percer,t ofBasotho workers. This proportion may be expected to 'icrease moderatelyin the medium term with the implementation of the Highlands Water Schemewhich involves trans-basin transfer of water from Lesotho's highland- tothe RSA. Besides bringing considerable revenues to the Government, theScheme is expected to creata jobs for about 5,500 skilled and semi-skilled workers at its peak, with additional jobs created in supportingindustries. The degree to which Basotho workers will benefit from thejobs so-created will, in large measure, depend on their preparedness forthe work involved -- in turn a function of their basic education andskill levels.

1.4 In addition to those employed within Lesotho, a significantproportion of working-age Basotho (38 percent of the male labor force)is employed outside the country -- principally in South Africa's mines.This substantial emigration is partly a response to the severepopulation pressure vis a vis empl3yment opportunities prevailing inLesotho, and partly attributable to the higher remuneration available inthe RSA. The migrant workers are of vital economic importance toLesotho, making a major contribution to the country's employment,household incomes and GNP (remittances nearly equal the total value ofdomestic economic activities, constituting about 46 percent of Lesotho'stotal GNP). However, these Basotho occupy mainly middle and low-skilledpositions in the mines, and their prospects for obtaining better jobs inthe future are highly restricted due both to inadequate skill levels andmining company policies. Moreover, increased competition from SouthAfrican workers even for the lower-skilled jobs and the risk oftightening of legal restrictions on Basotho labor migration to the RSAas a result of the ongoing political changes in that country suggestthat future employment prospects for Basotho in RSA's mining sector maybe relatively limited.

1.5 Indeed, it appears that employment opportunities for Basothoin the RSA mining sector are already rhrink!ng, as evidenced by thestagnation in the real value of mir worker remittances during the latterhalf of the 1980s. This has had stantial implications for Lesotho'sreal GNP growth and consequently, for the rate of improvement in thestandards of living of the Basotho people. For example, despite robtstgrowth in domestic output between 1986 and 1990 (real GDP grew at anannual average rate of 8.3 percent), GNP, reflecting very low growth in

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remittances, grew at the much alower rate of 5.5 percent per annumversus a population growth rate of 2.6 percent arnually. In thiscontext, it seems clear that the achievement of continued rapid growthin Lesotho's GNP and living standards will, inter alia, requires (a)evhancement of labor productivity and job opportunities domestically;and (t) improved c4impetitiveness of Basotho workers in the regionallabor market. In turn, this implies the need for a better educated,skilled and entrepreneurial work force, the creation of which willrequire a well-functioning, broad-based, education and training system.

B. Education in the National Developneat Stratea

1.6 Despite the importance of human resource development to acountry with extremely scarce natural resources, it WaS not until themid-1970s that Government began to pay serious attention to theeducation sector, gradually increasing its political and financialcomnitment to education, and explicitly recognizing the sector'sfundamental impertance to achievement of both economic and social goals.Prior to that time, education was left largely in the hands of thechurches, which establi6ked and operated virtually all primary andsecondary schools (as well as most post-secondary institutions) withcomparatively little supervision or direction from Government agencies.In the early 19808, Government undertook its first comprehensive surveyof the education sector with a view to identifying clear objectives forsectoral development in relation to broader national development goals.As a result of the survey, Government established three overarchingobjectives with regard to the education system as follows: (a) todemocratize access to education to the point where all Basotho childLenare assured of at least primary schooling or its equivalent; (b) toensure that educational programs reflect Lesotho's developmentrequirements, in particular with regard to the development of problem-solving skills, scientific and technical aptitudes and socio-culturalvalues in conjunction with basic literacy and numeracy; and (c) to equipsufficient numbers of individuals with appropriate occupational,technical and managerial skills to facilitate the country's socio-economic development.

1.7 During the decade of the 19809 -- i.e., the Third and FourthPlan periods -- substantial progress was made towards achievement ofthese goals. Primary school enrollments increased by about 40 percentfrom under 250,000 to nearly 350,000, and the number of secondaryschools increased from about 100 in 1980 to about 182 in 1990. Inaddition, the numher of uncertified teachers was reduced and severalImportant programs to improve math, science and language skills wereinitiated or strengthened substantially. In the area of technical-vocational education, enrollments grew from about 1,200 in 1980 to about1,700 in 1990, and several major institutions for specialized training(e.g., the National Health Training Center, the Center for AccountingStudies, etc.) were established. Lesotho's current gross primary andgross secondary enrollment ratios are approximately 116 percent and 24percent respectively -- among the highest in Sub-Saharan Africa.Moreover, females actually outnumber males at all levels of the

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education system, a ainique uircumstance in the Africa region where, alltoo often, girls are not given equal educational opportunities.

1.8 Despito these .eiportant achievements (ani in par perhaps pL

becauae of the rapid expansion in enrollments), Lesotho enters the l990sfaced with a serious problem of low and deteriorating quality ofeducaition. This la reflected in poo= test results and high levels ofpupil drop-out and repetition throughovt the system, with negative

liplications for the efficiency of reso .rce use. In this context,Government intends during the Fifth Plan period to focus explicitly onaddressing these quality and efficiency issues, while rescrainingfurther expansion of the education system, except where absolutelynecessary. The specif..c objectives/strategies included in the Plan are

described in detail in subsequent chapters of this report. In general,

they are consiLtent with the Bank's analysis of sectoral needs inLesotho and with recent Bank policy studies on education in Sub-SaharanAfrica and primary education in developing countriesv.

II. THE EDUCATION AND TRAINING SECTOR

2.1 This chapter begins with a short overview of the basiccharacteristics of the education and training sector in Lesotho,followed by a more co&iprehensive discussion of the principal issuesconfronting the country as it moves towards meeting its long-termsectoral development goals. The information, observations andconclusions presented here are based on (a) review of the extensiveassessments and other literature that exist now on education in Lesotho,(b) new data collection, evaluation and analyses undertaken for five-

year plan develo-*ent and this project, and (c) thorough consultationsbetween Government %nd IDA staff. The literature reviewed includessector analyses carried out by the Ministry of Education (MOE), the Bank

and other lonor agencies as well as staff appraisal reports and project

completiov reports of the preceding four IDA investments in tL.e sector.Working from this knowledge oase, the project preparation effort arrived

at the list of issues presented in this chapter after first consideringa larger list of potential problem areas, covering every aspect of

education from primary to post-secondary as well as the country'svocational and technical training systems. The issues discussed in

Section B below, after the background description of Section A, arerecognized by the Government as the principal areas where it needs to

concentrate its efforts in the next five years.

1/ See the following World Bank reports: (a) Kingdom of Lesotho:Improving Quality and Efficiency in Education, Report N. 8066-LSO,

(1989); (b) Education in Sub-Saharan Africa: Policies for Adjustment,Revitalization and Expansion (1988); and (c) ImProving Primary Educationin Developing Countries (1990).

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A. Basic Characteristics of the Sector

2.2 Unlike the situation in many Sub-Saharan African countrieswhere education is the direct responsibility of the state, Lesotho'seducation system remains largely a joint venture between the Governmentand the churches (mainly Anglican, Evangelical and Roman Catholic), withthe latter owning and operating 97 percent of primary and 86 percent ofsecondary schools. In addition, most technical and vocational traininginstitutions, with the exception of the MOE-run Lerotholi Polytechnic(LP) and the Thaba Tseka Skills Training Center (TSTC), are churchowned. The National University of Lesotho (NUL) is administered by anindependent council but, in view of its heavy reliance on Government forboth investment and recurrent expenditures includes MOE representationon its council. Specialized training institutions and programs areoperated by the Ministries of Agriculture, Trade and Industry, RuralDevelopment, Health, the Prime Minister's office, and in the industrialsector by the Lesotho National Development Corporation.

2.3 The structure of Lesotho's education system is given inChart 1. Currently, the system consists of seven years of primaryeducation, five years of secondary education (three years of jnmiorsecondiry and two years of senior secondary) and four to six years ofhigher education. Primary educatiou is conducted in Sesotho (thenational language) for the first three years and mainly in English inStandards 4 through 7. Post-primary education is entirely in English.Non-formal education courses are provided by the MOE through the LesothoDistance Teaching Centre (LDTC) and by the NUL Institute of Extra-MuralStudies (IEMS). Primary and junior secondary teacher education isprovided by the National Teacher Training College (NTTC), while senicesecondary teacher education is the responsibility of the Faculty ofEducation at NUL. Besides education, NUL offers courses in humanities,natural sciences, agriculture, social sciences and lav. As notedearlier (para. 1.7), enrollments have risen rapidly over the pastdecade, with over 350,000 children enrolled in primary and over 45,000enrolled in secondary schools as of March 1990. Moreover, femaleenrollment levels are especially impressive with over 94 percent ofgirls aged 7-14 years enrolled in school. As discussed previously, moregirls than boys are enrolled at all levels of the education system sothar femaletmale ratios are currently about 1.2:1 in primary, 1.5:1 insecondary and 1.5:1 on average in post-secondary institutions. Furtherdetails concerning enrollment levels and gender composition of theenrollees are given in Annex 1.

2.4 The administrative, financial and academic control of theformal education and training system is vested in the MOE, which, interalla, has responsibility for the training and payment of teachers,formal approval of teachers' appointments, dismissals etc.,adoinistration of exams, review and authorization of curricula, schoolinspection, and regulation of the opening and closing of schools. Anorganigram showing the present structure Gc. the HOE is given in Chart 2.While there are differences in the organizati'on of the three mainchurches with respect to education management, these are bssentiallyvariations of the same structure. Common to all is a single lineorganization of three levels of hierarchy comprising an executive body

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at the top, a single education secretary at the middle and parish-appointed school managers at the floor.

2.5 Traditionally, financing of education in Lesotho has beenshared by the Government, the local private sector (mainly throughstudents' fees and community labor for construction projects) and directcontributions from abroad, whether in cash or kind, made by thechurches. Although it is not possible to quantify the latter (church)contributions, there is no doubt that they have declined steadily inrecent years and have become only a marginal source of financing. Overthe same period, there have been substantial increases in funding ofcapital expenditures by bilateral and multilateral donor agencies, whichare channelled through the Government budget. In 1987, totalexpenditures for education in Lesotho (including the value of schoolfeeding programs and parents' contributions) amounted to about H 113million or about 3.7 percent of the country's GNP. This translates toabout H 68 or slightly over US$ 27 per capita at current exchange rates.The Government's contribution (including foreign aid) -- covering MOEadministration, teachers' salaries at all levels, most NUL costs(including student loans) and a high share of sectoral investment --made up nearly 70 percent of expenditures, with private sources, mainlyparents, providing the balance of 30 percent. Domestically-generatedresources covered 71 percent of education expenditures and foreign fundsthe remaining 29 percent.

D. Priority Issues

2.6 As indicated in Chapter I, the major educational challengeconfronting Lesotho as it enters the 19908 is to halt the widespreaddecline in quality and internal efficiency which besets the educationand training system at all levels. The principal problems being facedat each level of the system are discussed below in some detail (paras.2.7-2.15). This is followed by an analysis of the fundamental systemicfactors related to Lesotho's current modes of managing, financing andstaffing the education system which constitute major impediments toresolving identified problems.

Principal Problems by Educational Level

2.7 Primary Education. Poor quality of primary education inLesotho has multiple causes. The 'mfavorable learning environment isstrongly related to severe overcrowding, especially in the lower primarystandards, which is in turn caused by severe shortnges of teachers andclassrooms and high repetition rates. While on average a primary schoolteacher handled 46 pupils in 1980, that ratio has now risen to 55,significantly higher than the 40:l ratio believed by the MOE to providea manageable learning environment. The actual pupiltteacher ratio iseven higher than 55:1 in the ;owest standards (1-3), where rates ofwastage (drop-out and repetition) are highest, and where the leastqualified teachers tend to be assigned. The situation is even worse

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with regard to pupil:classroom ratios v, with the average number ofstudents sharing a classroom exceeding 67. If the 860 church hallsserving as makeshift classrooms are excluded, the pupiltclassroom ratioincreases to over 100l1. The problem is once again particularly acutein lower primary. where several hundred pupils commonly receiveinstruction from 2 or more teachers in a single room, leading toproblems of concentration and discipline. Overcrowding is alsoconnected with high rates of repetition, with about 22 percent of pupilsheld back each year. Repetition is highest in lower primary,exacerbating the already-serious overcrowding in standards 1-3.Repetition, overcrowding and poor quality of education create aparticularly vicious cycles classrooms swell with repeaters; learningsuffers because there are too many pupils (may of them over-age --e.g., about 30 percent of Standard 1 enrollees are aged 9 or over --with concomitant discipline problems) for the teacher to handle; theteacher's morale and self-confidence are undermined and schoolperformance of pupils is affected; and because of poor performance, alarge proportion of pupils are required to repeat the grade. Drop-outrates are also high, reaching 14 percent in Standard 1 and 11.5 percentin Standard 6 (see Annex 1, Table 7 for further data on drop-out rates).

2.8 In addition to overcrowding, the primary education systemsuffers from problems of teacher quality associated with the absence ofregular in-service training opportunities for teachers, poor supervisionby frequently inexperienced headteachers, inadequate inspection supportfrom MOE and a still-high proportion (about 20 percent) of uncertifiedteachers. Shortages of furniture and learning materials are anothermajor constraint. According to a recent MOE survey, 43 percent ofprimary school pupils have no furniture, while many others have chairsor benches but no desks on which to write -- with negative consequencesfor student learning. With regard to learning materials, the MOBthrough a national book loan scheme has made impressive progress inproviding basic textbooks (an average of 4.4 books per primary pupil)but shortages of supplementary materials such as teachers' guides andpupils' workbooks are apparent. Moreover, some schools lack enoughtextbooks because of snags in the distribution system. Finally, thereis a need to introduce a system of continuous student assessment toprovide diagnostic information on pupil achievements to direct remedialwork, contribute to promotion decisions and measure the quality ofinstruction across classes and schools. These factors, together withovercrowding and high repetition/drop-out, have seriously undermined thecost-effectiveness/internal efficiency of primary education in Lesotho

2/ In many developing countries shortage of classroom space has notbeen viewed as a major problem from the standpoint of studentachievement as classes can be held outdoors throughout the year. InLesotho this option is not available for many months of the year whenthe climate is too cold to allow for extended sessions outdoors.

31 In 1990, repetition rates were as follows: Std. 1 - 31 percent; Std.2 - 25 percent; Std. 3 - 23 percent; Std. 4 - 19 percent; Std. 5 - 15percent; Std. 6 - 12 percent; and Std. 7 - 13 percent.

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so that, at present, it requires an average of 14 years of investmentper student completing the 7-year primary cycle.

2.9 Secondary Education. As with primary education, there iswidespread concern among educators, parents and MOE officials in Lesothothat the quality of secondary education has been declining. Indeed,Cambridge Overseas School Certificate (COSC) results indicate that onlyabout a quarter of students pass the examination. At least in part theproblem is the direct result of the poor preparation in primary school:when students admitted to secondary institutions are inadequatelyprepared, it is difficult for instruction in secondary school toovercome this handicap. A "cascading' effect occurs, with a negativeimpact on secondary and post-secondary education. Several other factorsalso affect the quality of secondary schooling. A major constraint isthe persistently high proportion of uncertified teachers, coupled withthe fact that many qualified teachers are foreign nationals, with arelatively high turnover rate. In addition, mwny schools are affectedby a lack of special facilities such as libraries and laboratories whichcould help enrich the quality of secondary education. Finally, theabsence of an effective inspectorate to provide guidance to schools hashad negative consequences for educational quality. Although aDepartment of Secondary Education has recently been created within MOE,it is still largely unstaffed (and secondary schools are not yetinspected effectively from the district level).

2.10 While recognizing that quality improvements (some of whichwill require additional resources) are necessary in the secondarysubsector, the Government is becoming increasingly concerned about theextremely inefficient use of available resources within the subsector atpresent. Unit costs have been rising substantially in recent years,mainly because secondary-level student:teacher ratios have fallen to21 1 (1990), though education specialists agree that the ratio could beraised to 30:1 without any loss in the quality of instruction. Thisinefficient development has taken place because a large number of smallsecondary schools were built during the 1980s (mainly by church missiongroups), many of which have such small enrollments that sub-optimalstudentsteacher ratios inevitably arise. Nearly 90 percent of Lesotho'sjunior secondary schools (forms A-C) have fewer than 200 students, theminimum size set by MOE; and about 60 percent of high schools (forms A-E) have fewer than 400 students, the minimum norm established by MOE.While a few of these schools are in sparsely-populated mountain areasand are thus necessarily of smaller size, most are in lowland townswhere several schools a2e located too close to each other, therebysplitting among them the limited student population in their(overlapping) catchment areas. The use of resources in many secondaryschools could also be improved by increasing the management skills ofheadmasters/headmistresses, who all too frequently lack experience withtimetabling (to make better use of teacher inputs and physicalfacilities), basic financial management and maintenance needs.

2.11 University Education. Despite the presence of a generallywell-trained faculty and adequate physical facilities (except in a fewareas, such as laboratories for science), academic quality at NULsuffers from a number of drawbacks. One key drawback is the structure

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of the academic system, termed the "unit course' system, which thoughdesigned with good intentions to combine the best elements of theBritish and American systems, has become increasingly complex andfragmented, making it very difficult for students to follow a well-structured, coherent progression of studies. Moreover, opportunitiesfor tutorial work and exposure to practical situations are extremelylimited, in part because the complex timetabling requirements of theunit course system absorb excessive faculty time in record-keeping andpaperwork. Another factor which affects the quality of education is thelarge proportion of faculty time devoted to committee work rather thanteaching or research, given the existence of an inordinately largenumber of committees (22) and the fact that faculty are rewarded forparticipation in committees while research, until recently, was notexplicitly recognized. Lack of funds for library books and Journals andresearch activities is also a major problem affecting academic quality,as is the failure to reap benefits in teaching quality from encouragingregular interaction between NUL's four research institutes and relevantfaculty departments.

2.12 Apart from issues concerning academic quality, there is alsowidespread concern about the adequacy of NUL's government and managementsystem, under which the authority of Council and the senior managementcadre is seriously limited, inter alia, by excessive devolution ofdecision-making authority to faculty committees of the Senate.Moreover, the Senate itself and many of its committees are unnecessarilylarge, making it difficult to reach consensus on, and implement,decisions on both academic and non-academic activities. Nocomprehensive management information system exists which could helpinform policy and administrative decision-making on a regular basis.Moreover, there is a need to integrate academic planning, staffdevelopment and more general university deve'opment activity to ensurecoherence in the aims and implementation of these functions. Physicalpl"-nning, too, needs to be upgraded, both to optimize utilization ofexisting facilities and to direct the design of new ones in a mannerconsistent with economically establishing a cohesive physicalenvironment of appropriate quality.

2.13 With regard to university revenue and expenditure, the mostpressing need is to continue to review and implement options forcontaining costs in non-teaching areas, which account for over half ofNUL's annual expenditures. Specific areas where further action isindicated include energy conservation, in-house services such as thelaundry and garage, reducing numbers of grounds and maintenanze staff,and subsidies provided to NUL employees, including housing subsidies andcommuting and education allowances. Encouragement to NUL's researchinstitutes to generate a greater proportion of their operating costsfrom sources external to the NUL budget could also have a substantialimpact on university finances. With regard to generating additionalrevenue, government has given consideration to the option of raisingstudent fees to cover a higher proportion of NUL operating costs.However, given the small size of the student body (about 1200 full-timestudents) and the fact that the majority of students receive governmentloans (about M 6,000 per student per annwm) to cover tuition and boardand lodging costs, it was concluded that the net effect of increased

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fees on government sectoral allocations was likely to be relativelysmall, besides being politically very difficult to implement. In thiscoutext, Government, appropriately, is focusing its attention onenforcing repayment of student loans for which the recovery rate ispresently under 10 percent. The principdl option being considered is totransfer the administration of the student loan funds to commercialbanks, which are better equipped to enforce repayment. A

2.14 Technical and Vocational Education (TVE). It is only since1984, with the passing of the Technical and Vocational Training Act,that the Government, tk. ough the HOE, has begun to attenupt to direct TVEprograms in Lesotho. Inter alia, it has created a Department ofTechnical and Vocational Training (DTVT) within HOE and established anational advisory board with representation from industry and donoragencies to foster better linkages between training and industryrequirements. Although enrollments in TVE have expanded rapidly (inboth Government and church-owned institutions) during the 1980s (para.1.7), the quality of training provided is extremely variable, largelydue to the lack of uniform curricula, facilities and end-of-coursetests. In the medium-term, therefore, there is a need to give highpriority to standardizing TVE courses in at least the main subject areasand to institute standardized examinations allowing for the award of anationally recognized diploma or certificate. In general, also, thereis a need to enhance the quality of training by raising the practicalcontent of courses offered in post-secondary TVE institutions throughmore (and better supervised) industrial attachments, improved workshopfacilities and increased budgets for materials. Efforts are also neededto lower unit costs at Government-run TVE institutions through offeringmore evening courses and instituting management improvements aimed atoptimizing resource use.

2.15 Even with serious efforts to lower the (relatively high)unit costs at formal TVE institutions, it is unlikely that Governmentcould support significant expansion of TVE enrollments in the next fiveyears or so given budgetary constraints and priority needs in othersubsectors. At the same time, there is clearly a need for more skilledmanpower in Lesotho, given industrial growth and the likely impact ofthe Highlands Water Scheme. In this context, more attention should bepaid to the scope for partnership with employers in developing the poolof technically skilled workers which Lesotho clearly needs. One optionis to substantially strengthen trade-testing, which is a relatively low-cost approach in that much of the training is provided by employers onthe job, with Government resources used mainly to administer tests,certify successful candidates, and, when necessary, offer limited

4/ Some analyses have plausibly argued that increasing cost-recovery atNUL may have the benefit of reducing inefficiencies in the students'choice of subject specializations, even if the revenues generatedthrough fee increases are relatively small. In the medium term however,given NUL's present situation, it seems clear that higher priority needsto be given to increasing university discipline and teaching qualitywhile containing non-teaching costs, rather than to modifying studentsubject specializations.

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supplemental part-time courses to those failing tests because ofdeficiencies in theoretical knowledge. Another possible option is tointroduce a training levy on industry, the revenue from which could helpdefray the cost of formal training. However, unless it can be ensuredthat formal training is very tightly geared to industrial heeds, thereis likely to be opposition from employers to this 'atter option.

Structural Issues

2.16 While it may appear that many (if not most) problemsidentified in paras. 2.7-2.15 above could be resolved simply throughadditional investment in Lesotho's education sector, detailed analysissuggests that, in fact, such investments are likely ) have much lessthan the desired impact -- and are unlikely to be sudtained over time --unless fundamental issues related to sectoral management, financialresource allocation and staffing are also addressed simultaneously. Forexample, basic changes are required to the organization and structure ofthe MOE at the central and district levels if it is to manage sectoralresources more effectively and actively promote quality and efficiencyimprovements throughout the system. Similarly, much more clarity in therelationship between the MOE and the school proprietors (the churches)is necessary to ensure that public resources allocated at the primaryand secondary levels are used in accordance with national priorities.With regard to financing, there is a need for Government Rs a whole (notjust the HOE) to recognize the legitimate incremental funding needs ofthe sector and to adjust financial resource allocation among thesubsectors in a manner consistent with achieving both greater equity andhigher social returns from sectoral expenditures. Finally, there is aneed to explicitly acknowledge the central role of teachers in anyeffort to improve educational quality by addressing long-standing issuesof poor conditions of service, which, over the years, have seriouslyundermined teacher morale and professionalism. There can be littledoubt that without a well-i.otivated teaching force, the impact ofinvestments in physical facilities, learning materials and evenmanagerial and systemic improvements is likely to be substantiallyreduced. The remainder of this section (paras. 2.17-2.20) examines eachof these issues in greater depth, in relation to their impact onLesotho's education system.

2.17 Sectoral Management. The principal issues in educationsector management can be divided into two interlinked categories asfollows: (a) weaknesses in the structure and organization of the MOE(including management style and procedures); and (b) issues related tocollaboration between HOE, the school proprietors (i.e., the churches)and parents/local communities in the managez.nt of schools.

(a) Structure and Organization of the MOE. The structure andorganization of the MOE is characterized by a number of weaknesses,which together inhibit its ability to routinely undertake strategicplanning, effectively regulate and monitor educational institutions andprograms at all levels, or hold individuals and units accountable fordelivering specified work program responsibilities. These problems stemfrom a number of factors, which were the subject of a comprehensivestudy undertaken as part of Fifth Plan development. The main issues

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identified by that study can be summarized briefly as follows: (i) ac.entral MOE structure which is confused and over-complex, characterizedby lack of integration between the mainstream management structure and aweb of aid projects and ruits which represent the residue of past donor-assisted projects; (ii) ,ak organization of the ministry at regionaland district levels and a consequent inability to undertake effectivemonitoring and educational audit of a broad-based educational system;(iii) inadequate distance between the operational menagement ofpublicly-supported institutions such as LP and NTTC and the planning,regulating and monitoring functions of the MOE; (iv) understaffing andpoor equipping of key units concerned with planning/monitoring andfinancial management; (v) blurred patterns of accountability anddelegation under which certain units arbitrarily redefine their ownreport.ng lines; (vi) lack of definition of individual responsibilitiesand tasks at all levels of the ministry; and (vii) an incoherent salarystructure which does not always reflect responsibilities and in whichinsufficient incentive is given to efficiency and initiative. There isbroad agreement within the Government that the above factors constitutemajor obstacles to improving the effectiveness and efficiency ofLesotho's educational system which must be ameliorated if theeducational reforms proposed for the Fifth Plan period are to besuccessfully implemented.

(b) Collaboration between MOE, Proprietors and Parents.Recognizing that Lesotho's high male and female school participationrates could not have been achieved without the proactive role of theproprietors in promoting education for their parishioners and the highvalue placed by Basotho families on education, Government in Lesotho,unlike in many other African countries, maintains strong commitment to apartnership between proprietors (i.e., churches), parents and the MOE inoperating primary and secondary schools. Such a cooperative approachhas much to offer and is not very dissimilar from models of indirectprovision being developed in tne United Kingdom and elsewhere. Atpresent, however, the partnership is much less than effective mainlybecause of the failure of the Government to exercise many importantpowers in respect of policy-making for, and regulation of, the educationservice as a whole.

Indeed, in Lesotho's present system, clear criteria seldom existfor either the allocation of public funds to proprietors or use by theproprietors of the funds once granted. Moreover, even where criteriahave been established, non-compliance by proprietors is rarely addressedthrough effective penalties (such as withholding of public resources).At the same time, little progress has been made in formalizing theinvolvement of parents and local communities through the establishmentof school committees or parent/teacher associations which could bring tobear a measure of local accountability to the running of schools. Inthis context, propr.etors are able to use Government and parents' fundsto pursue objectives for the education system that may bear littlerelationship to established sectoral developmental objectives. On theother hand, there appears to be inadequate consultation with proprietorsin setting sectoral strategy which at least partially explains theirfailure to fully understand or act in accord with it. Several examplesexist of the detrimental impact on educational quality and effectiveness

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of the persistent lack of meaningful coordination between Government,school proprietors and parents. Four of the most serious are describedbelow.

(i) One key problem which is especially wasteful of limitedsectoral resources concerns duplication of services, with morethan one church group "competing, for educational customers withinthe same geographical area, while other areas remain relativelyunderserved. This is especially evident at the secondary level,where, as indicated in para. 2.10, unit costs have been rising dueto the proliferation of small secondary schools run by differentchurch mission societies. Feasible options for addressing thisissue include stricter regulation of the opening and closing ofsecondary schools, assistance to small secondary schools indetermining academic programs (and related teacher complements)appropriate to their size, and, regulating the allocation ofgovernment-funded teaching posts in accordance with a pre-established student:teacher ratio. However, the MOE, given itsown organizational difficulties, has been unable to enforce any ofthese politically difficult options, with the result thatresources continue to be inefficiently allocated.

(ii) A second issue is that MOE's technically appropriate policyof improving primary school quality before promoting furtherexpansion of secondary schools has been difficult to implemientwithout prior consultation with, and cooperation from,proprietors. Frequent cases are reported of diversion of publicresources intended for primary schools to secondary (includingphysical facilities and teaching posts), perhaps due to thegreater prestige involved with owning and operating a secondaryschool. In the meantime, primary schools continue to suffer fromserious problems of overcrowding related in turn to staffing andclassroom shortages (para. 2.7) Moreover, consistent pressure onGovernment from proprietors to provide resources to secondaryinstitutions has meant reduced availability of limited funds forquality and access improvements at the primary level.

(iii) Inadequate coordination (and sometimes, mutual suspicion)between the MOE, parents and proprietors and among proprietorsthemselves has also contributed to inefficient local levelmanagement of the education system. For example, many churchmissions have been unwilling to delegate day-to-day schoolmanagement to headteachers, who, because their salaries are paidby Government, are viewed as MOE, rather than church, employees.Instead, most proprietors have appointed school managers for theirparishes, who are frequently less than effective, given that mostwork part-time, have little management experience themselves, areextremely low-paid (if not volunteers) and, in addition, areprovided few resources such as transport, ledgers etc. with whichto carry out their functions. Moreover, their deployment (byparish) is necessarily inefficient as the lack of cooperationacross the different denominations means that school managers haveoverlapping circuits and must travel over much longer distancesthan if a more rational deployment pattern were employed. The

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result is that school level management is unacceptably weak, withobvious implications for educational quality.

(iv) A further very serious cause of concern arises from themanner in which teaching posts are allocated. The current systemallows the MOE to apportion grants for teachers' salariec toschool proprietors but not to individual establishments. TheMOE's allocations are based mainly on the application ofrelatively simple staffing standards derived in the primarysubsector from pupil numbers and in the secondary sector frompupil numbers modified by the need to ensure that schools canoffer all aspects of the official curriculum. (This secondconsideration has contributed to the cost-ineffectiveness of smallsecondary schools.) To the extent that no effective mechanism hasbeen established to ensure that proprietors use similar criteriain dividing their respective allocations, the system has tended tobreak down at this second level, with proprietors allocating poststo areas where they can most easily be filled rather than to areasof greatest need. The result has been extremely inefficient (andinequitable) distribution of the most substantial part of publicfunds made available for educational purposes.

2.18 As the preceding examples demonstrate, the lack of cleardefinition of the roles of the three partners in Lesotho's primary andsecondary education system is having a serious impact on educationalquality and efficiency and must be addressed if future expenditures inthe sector are to be effective in achieving sectoral objectives.Government rightly believes that a successful partnership in the futurewill involve a more explicitly contractual relationship between the MOEand proprietors, a stronger MOE presence at regional, district andschool levels, and greater empowerment of parents and local communitiesto influence school management.

2.19 Sectoral Financing and rxpenditures. As indicated in para.2.16 above, issues in sectoral financing and expenditure are related to:(a) the need to increase public expenditure on education; and (b) theneed to rationalize allocations within the sector to maximize socialreturns. Improvements in these two areas are fundamental to theachievement of Fifth Plan goals of increasing the quality and efficiency(i.e., cost-effectiveness) of education, especially at the primarylevel, where increased outlays for more, better-trained teachers withaccess to improved physical facilities, instructional materials andother resources would, over time, lower the unit cost of graduatingprimary pupils. Rationalization of expenditure by subsector -- inparticular, constraining growth in expenditure at the post-primarylevels which thus far have received a disproportionate share ofresources -- would also provide greater incentive for cost-containmentin institutions at these levels. Past trends in sectoral financing andallocations and needed adjustments are discussed in (a) and (b) below.

(a) Public Financing of Education. As noted in para. 2.5, thebulk of educational costs in Lesotho are borne by parents and Government(including foreign development assistance channelled through the publicbudget). By comparison with other African countries at similar income

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levels, the proportion of costs borne by parents is relatively high inLesotho - accounting for about 30 percent of total sectoralexpenditures and a substantially higher proportion at the primary andsecondary levels and at TVE institutions where cost recovery effort.have been concentrated. In this context, the scope for additional costrecovery, at least for basic and technical education, is limited bybroad equity considerations. While increased cost recovery could be anoption at NUL and, to a lesser extent, at NTTC, the small size of thestudent bodies at each of these institutions suggests that the revenuesthus generated are unlikely to substantially affect the overall sectoralfinarzsing picture, besides being politically very difficult to implement(see para. 2.13). To the extent, therefore, that the education sectorin Lesotho is under-funded -- and, as previously discussed, fundingconstraints are having a serious impact at the lower tiers of the system(paras. 2.7-2.9) -- it will be necessary to look to public funds anddonor assistance to meat identified gaps.

Trends in Government allocations/expenditures for education weredisappointing during the 1980s when real per capita recurrent spendingon education declined substantially at a time of expanding enrollments,contributing to the deterioration in educational quality. While nominalrecurrent allocations for education increased from M 26 million to M 30

million between 1982 and 1987, in reai per capita terms this implied aserious drop from M 31 to M 22.9 over the five-year period. Even largenominal rises in recurrent allocations during the subsequent three yearshave not restored per capita spending to their 1982 level, given highpopulation growth rates (2.6 percent per annum) and continued increasesin net and gross enrollment ratios. As a share of the national total,recurrent expenditures on education stood at 16.4 percent in 1990/91,modestly reversing a declining trend in the preceding seven-year period.

Nonetheless, this level of recurrent spending is lower than in manyother African countries, where it generally amounts to about 20-22

percent of the total budget. In view of the current shortages ofteachers, their low levels of compensation [see para. 2.20 (a)],continuing shortages of teaching materials and other essential inputs,pursuit of quality improvement goals in the Fifth Plan period willrequire continued increases in the share of the budget allocated toeducation. As Lesotho's overall government spending relative to GNr(24.3 percent in 1990/91) is lower than in many other countries, Lesothomay need to direct relatively more expenditure toward educatior. to equaleffort in other countries.

In contrast to trends in recurrent spending, capital expendituresfor education in Lesotho (mainly derived from foreign sources) have beenrising in recent years, a welcome development as some su:sectors withineducation (for example, primary education and teacher tr.ining) havelong suffered from underinvestment. During the Fourth Plan period(1985/86-1990/91), planned capital expenditures amounted to an averageof about H 25.4 million (US$9.3 million equivalent) pe_ year, withimplementation rates of about 80-90 percent of planned levels. The gspbetween planned and actual implementation rates was largely attributableto inadequate funding for proposed activities, suggesting the need tobetter plan sectoral development programs and make realistic assessmentsof likely donor assistance. In order to improve this situation, a

L1wU,.;

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number of options should be considered by the Government (withcollaboration from the donor community) including undertaking sectoralstudies and policy analyses jointly with donors, setting clearobjectives and strategy, encouraging donor co-financing of specificprograms and projects within the framework of a defined-strategy, andsponsoring donor conferences to review sectoral development needs. Asevidenced by the following discussion of Government's Fifth Planeducation submission and the project proposed later in this report,Government has already begun to take steps to promote bettercoordination with and among donors, including the Bank.

(b) Rationalizing Resource Allocation Among Subsectors.Government recurrent outlays per student at different levels ofeducation display extremely high variation in Lesotho. For example,public expenditures at NVL in 1987 (H 7922) were more than 23 times theamount spent by Government for secondary students (M 338) and nearly 150times the public funds allocated for each primary student (M 53). Eventaking into account parents' contributions (which are conc-?ntrated atthe primary and secondary levels), per student outlays at NUL are 13times greater than for secondary students and 71 times larger than forprimary school pupils. In order to ach'eve Government's key educationalobjectives for the coming Plan period and address the quality andefficiency issues outlined in paras. 2.7-2.15 above, it will benecessary to gradually reduce these existing large differentials in perstudent expenditure, principally by increasing outlays at primary leveland lowering unit costs at NUL.

The distribution of capital expenditures during the Fourth Planperiod has been of equal concern, particularly when viewed in thecontext of Government's stated objective of emphasizing basic educationin its education development strategy. During the five-year period,primary education wae allocated only 16 percent of total investmentresources despite the demonstrable needs of the subsector. On the otherhand, planned capital expenditures for NUL amounted to over 21 percentof Fourth Plan education investments, with secondary education, teachertraining and TVE receiving 14.1, 19.4 and 8.4 respectively.Strengthening of the i-apectorate (mainly secondary) received 9.2percent, with the remainder (12.1 percent) going to administration.Moreover, several problems were apparent with the content of thespecific investments proposed. For example, capiLal investments at NULwere generally associated with major incremental institutionaloverheads, despite existing problems of excessive administration andoverhead charges and potential for expanding enrollments withoutsignificant additional investments. Similarly, investments at NTTC didnot result in any expansion in trainee capacity, despite the graveshortage of qualified teachers. As with recurrent expenditures,therefore, it is apparent that significant adjustments to thedistribution and composition of investments will be required during theFifth Plan period, to ensure that sectoral goals can be achieved.

2.20 Teacher Motivation. The third major systemic issueaffecting the quality of education in Lesotho (particularly at primaryand secondary levels) is the low morale of teachers. As indicated inpara. 2.16, the presence of motivated and competent teachers is crucial

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tD the efficient functioning of any education system and a major factoria ensuring the effectiveness of incremental sectoral investments.However, long-standing neglect in Lesotho of teachers' legitimatedemands for improved conditions of service and professional support has,over the years, undermined the motivation of the country's teachingforce and exacerbated the shortage of qualified teachers as many haveleft to work outside Lesotho's borders. Moreover, the low compensationlevels have probably also discouraged the most qualified secondaryschool leavers from opting fur teaching careers. Issues affectingteachers in Lesotho can be grouped into two broad categoriess (a) poorconditions of service; and (b) inadequate managerial and professionalsupport.

(a) Conditions of Service. Since 1978, when Government tookover the payment of teachers from the church missions, there has beenlittle systematic attention paid to issues of appropriate remuneration,benefits or career structure for the teaching service. Today, teachers'salaries are, on average, 40 percent below levels prevailing in thecivil service, taking into account equivalence of pre-service academicqualifications. In some instances, differentials in pay levels betweenteachers and civil servants are as high as 65 percent. Benefits, too,have been significantly different in the teaching service vis a vis thecivil service. Until 1990, when Government first passed a statuteenrolling teachers in a non-contributory pension scheme similar to onefor civil servants, teachers were not entitled to any retirementbenefits whatsoever, irrespective or the length of their service in theeducation system1 . Moreover, in the initial phases of implementationof the pension scheme, married women, who constitute the bulk of theteaching force, were deemed ineligible for pension benefits. Thisrestriction has since been removed in the wake of growing discontentamong teachers, culminating in a widespread teachers' strike in mid-1990.

In addition to long-standing neglect of inequities in teachersalaries and retirement benefits, Government taes paid little attentionto establishing appropriate incentives/compensation for work in theremote, highland areas of the country (e.g., cash payments or housing)despite widespread acknowledgement that service in these areas involvesparticular hardship in terms of higher cost of living, isolation frompeers, weaker professional and managerial support, etc. Minimalhardship payments that were established in 1985 have remained unchangedat M 15 per month up to the present, so that their real value has erodedsignificantly over time. Finally, there is essentially no careerstructure for teachers, with pay increases within established gradelevels awarded solely on the basis of length of service (up to fiveyears before plateauing), and little scope for mobility between gradeswithout adding more formal education. Addressing these and the salaryand retirement benefits issues discussod above is vital to improving themorale of Lesotho's teachers as well as to attracting (and retaining)

5/ It should be noted that the 1990 legislation allows for retroactivepayment of pension benefits to teachers -- to 1982 for male teachers and1984 for female teachers.

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competent individuals to the t6iching service in a11 parts of thecountry. The degree to which they can be #!dressed in the coming FifthPlan period is An large measure dependent on steps taken by Governmentto increase recurrent budget allocations to the education sector (para.2.19 (a)).

(b) Managerial and Professional Support. In addition tofundamental problems of remuneration, teacher motivation has also beenadversely affected by the lack of effective managerial and professionalsupport. Teaching service management problems stem in large part fromthe continuing lack of clarity regarding the respective roles of the MOEand proprietors in education service delivery. Prior to 1978, whenGovernment assumed responsibility for the payment of teachers' salaries,all matters pertaining to the management of teachers were entirely theresponsibility of the proprietors, who covered teachers salaries fromtheir own funds and parent contributions. subsequent to 1980, however,efforts were made (sometimea resisted by proprietors) tc graduallyincrease MOE's role in the management of teachers, until in 1984 thedecision was taken to establish an independent Teaching ServiceCommission (TSC) comprised of representatives of the proprietors, MOEand the general public to oversee payment of teachers' salaries andassume responsibility for the management of teachers' (includingrecruitment, placement, transfers, promotion, discipline standards,dismissal etc.). While, in theory, this arrangement represented apromising compromise between MOE and proprietors, in practice the TSChas remained an extremely weak institution, unable to meet regularly,take necessary decisions or serve as a focal point for meeting teachers'needs for managerial support. Moreover, it has lacked the necessarystaffing, equipment and financial resources required to efficientlycarry out its administrative functions or establish a presence at thedistrict/local levels, with the result that it has continued to relyalmost wholly on proprietors' recommendations on all matters relating toteachers. At the same time, many proprietors at the local level havedistanced themselves from teacher management, viewing teachers as publicservants, and, as such, the responsibility of Government. In thissituation, teachers have experienced considerable confusion as to wheretheir allegiances are expected to lie, or where they should turn toresolve problems related to their employment conditions. During therecent teachers' strike, this issue was raised as a major problemaffecting teacher morale and job satisfaction.

Lack of adequate professional support has been another importantfactor affecting teachers' ability to effectively carry out theirteaching and classroom management responsibilities, or adapt to adverseteaching/learning environments. A key issue in this regard --ineffective day-to-day management at school level -- has already beendiscussed briefly in para. 2.17 (b) (iii). Similarly, the absence,until recently, of a recognized teachers' association to cater toteachers' professional needs and represent them with the TSC hascontributed to a deprofessionalization of the teaching force. Anothermajor factor affecting teacher motivation and performance is the failureof the MOE and/or school proprietors to provide systematic opportunitiesfor in-service training and sharing of professional experience withpeers. Although a number of initiatives in this regard were begun with

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donor (mainly World Bank, U.S.A. and U.K.) assistance -- including theLIET program designed to upgrade skills and certify unqualifiedteachers, the district resource teacher system aimed at assistingteachers responsible for multiple classes at different grades, and thecurriculum dissemination network intended to increase teacherunderstanding of curriculum changes -- these have not always beensystematically incorporated into the MOE program or linked to specificteacher development strategies, thus remaining ad hoc in nature.Finally, pre-service training has, in many instances, been inadequate toequip teachers to face the realities of classroom teaching in poorlyequipped and managed schools, especially in terms of the special skillsnecessary to manage large classes of young children at the lowest levelsof the primary system. This lack of preparedness for the world of workhas also undoubtedly had a detrimental impact on teacher morale andprofessionalism.

C. Donor Involvement in the Education Sector

2.21 As discussed in Sections A and B of this chapter, investmentexpenditures in Lesotho's education sector have been financed mainly bybilateral and multilateral donor agencies including the World Bank. In1987, for example, aid accounted for more than three-quarters ofexpenditures on educational facilities, transport and technicalassistance. Foreign assistance, in turn, was dominated in the FourthPlan period by the USAID-funded Basic and Non-Formal Education SystemsProject and the World Bank-supported Fourth Education Project (discussedin some detail in Section D below). The main focus of each of theseprojects has been on relieving some of thte most serious constraints inprimary education, including classroom. construction and equipping,teacher training, improving the end-of-cycle test, increasing access totextbooks, and strengthening curricula in some subjects. While theseinvestments have had a positive impact xn the subsector, there is stillmuch to be done as the preceding section on sectoral issues indicates.

2.22 Other important donors in edu. ition include: (i) the FederalRepublic of Germany (FRG) which is supporting investments in technicaland vocational education at LP; (ii) the Ev :opean Community (EC) whichis active both in training Basotho for skih9d jobs in the HighlandsWater Scheme and in financing math and sciot lee enrichment programs atNUL; (iii) the U.K. Overseas Development Administration (ODA) which issupporting the science faculty at NUL and helping to strengthen thesecondary inspectorate; (iv) the Irish Government which is providingsupport for industrial training and for training of teachers to teachpractical subjects in secondary schools; (v) the African DevelopmentBank (AfDB) which is supporting a range of activities includingconstruction of science laboratories and teacher housing for secondaryschools; and (vi) the World Food Programme (WFP) which has supportedschool feeding and agriculture teaching in primary and secondaryschools. It is expected that most of these donors will maintain theirsupport to Lesotho's education and training sector during the Fifth Planperiod. In addition, a number of other donors (including UNDP andUNICEF) are likely to expand their, heretofore relatively limited,

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support for the education sector, following on the 1990 "Education ForAll' world conference.

D. Bank Roll and Assistance Strategy

2.23 Bank Role. Since 1974, the World Bank, through itsconcessional financing arm, the International Development Association(IDA), has provided Lesotho US$31.5 million through four educationprojects, mainly to help keep pace with population growth by expandingenrollments at the primary level, improve the quality of primary andsecondary education, upgrade vocational training facilities andestablish programs for non-formal education. The specific objectives ofeach of the four projects are described belows

(a) The First Education Project (Credit 497-LSO), approved inJuly 1974, for US$4.0 million, was designed to: (i) expandtechnical and commercial education at the senior secondary level;(ii) establish an extension college (the Lesotho Distance TeachingCenter) for adult and non-formal education; and (iii) providefacilities and equipment for the introduction of a new and morepractically-oriented curriculum in six general secondary schools.The project was completed by the original credit closing date,having substantially achieved its educational objectives andphysical targets, apart from lower-than-anticipated participationin the distance teaching program.

(b) The Second Education Project (Credit 748-LSO), approved inNovember 1977, for US$7.5 million, was designed to (i) expand twosenior secondary technical schools; (ii) unify and encouragecurriculum development efforts through the provision of a NationalCurriculum Development Center (NCDC); (iii; help establish a basefor trade-testing; (iv) increase the number of general secondaryschools with facilities for implementing the practinal curriculum;and (v) encourage a community-outreach program and the use ofproject-provided facilities during free periods by adults and out-of-school youth. After getting off to a good start, the projectencountered implementation delays due to weak administration.However, the problem was resolved in early 1980 and implementationimproved significantly, although a postponement of the closingdate by one year was approved to allow for completion of allproject components.

(c) The Third Education Project (Credit 1148-LSO), which wasapproved in May 1981, provided US$10.0 million for (i) theimprovement in quality of primary education through constructionof 150 classrooms and establishment of a revolving fund scheme forthe provision of textbooks in English, Sesotho and mathematics;and (ii) the expansion of vocational trainling facilities throughsupport for the rural skills training center at Thaba Tseka andthe Lesotho Opportunities Industrialization Center. About midwaythrough the project, the Government received Bank Group approvalto use the credit savings arising from the greatly expandedpurchasing power of the US dollar to expand the classroom

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construction program. Consequently, the credit closing date wasdelayed by one year, to September 1987, to permit completion ofthe project additions.

(d) The Fourth Education Project 'Credit 1512-LSO), approved inJuly 1984, involved a credit of US$10.0 million equivalent aimedat (i) improving quality of primary education through constructionof 330 classrooms and in-service training of teachers andheadteachers; (ii) provision of workshop and classroom facilitiesand science laboratories at secondary school, complemented by in-service training of vocational teachers; and (iii) establishmentof a business/commercial stream at an existing vocational school.The credit, which was originally due to close in September 1989,was extended by two years mainly to allow for the use of savingsto meet urgently-needed technician level skills at ministriesconcerned with infrastructure development, which had lost skilledstaff to the Highlands Water Scheme. The project's closing dateis now September 1991.

2.24 Lessons Learned. Based on a review of Project CompletionReports (PCRs) and Operations Evaluation Department (OED) audits, whereavailable, it seem clear that experience with the above projects hasbeen largely positive in terms Lf meeting immediate physical andoperational targets. With regard to the qualitative results, frequentmention is made in the PCRs of the success of the projects ininstitutionalizing capacity for cost-effective classroom constructionwith limited manpower and technical assistance resources, and of theestablishment of the revolving fund scheme for the provision of primaryschool textbooks. The main area of criticism concerns the continuedefforts in successive projects to expand teaching of practical subjectsin secondary schools, despite persistent problems of teaching staffshortages, problems with availability of materials and poor equipmentmaintenance. The recent Bank policy paper on Vocational and TechnicalEducation and TraLninp, 1991, which reviews experience with diversifiedsecondary education across comntries, shows that these problems arewidespread globally, and, on a policy level, concludes that "the extraresources used in many countries to replace part of the academiccurriculum with a few vocational courses would be better invested inimproving learning achievement in the academic curriculum, or inincreasing access". Finally, the Lesotho PCRs stress the need forcontinued and intensified efforts to improve the quality of primaryeducation and recommend closer attention to the broader policy,institutional and managerial framework within which investment projectsare developed.

2.25 In line with these latter PCR recommendations, the Bank (in1989) undertook a comprehensive sector study of education and trainingin LesothAo (Report No. 8066-LSO) as a basis for initiating a broaderpolicy dialogue with Government on future directions for (and Bankassistance to) the sector. Many of the issues highlighted in thepreceding section (B) of this chapter were identified through the study,and key study recommendations have been incorporated in Government'sFifth Plan education submission which forms the framework for theproject proposed later in this report. The sector study, which involved

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intensive consultation with Government counterparts, also helped lay thefoundation for increased donor coordination in the education sector byinvolving USAID and ODA in both the data-gathering and analytic work.

2.26 Bank Sectoral Assistance Strategy. Recognizing the centralrole of human resource development, especially education and training,to long-term sustainable economic development in Lesotho, the CountryStrategy Paper stresses continued Bank financial assistar.ce foreducation in both optimistic and pessimistic scenarios. The majorthrusts of our sectoral assistance strategy are as follows: (a) toassist Government to develop a realistic, comprehensive strategy forsectoral development as a framework for coordinating domestic and donorinvestments in the sector; (b) to help Government address fundamentalstructural issues of sectoral management, financing and staffing tocreate an enabling environment for enhancing the effectiveness ofavailable sectoral resources; and (c) to assist in the ambitious effortto halt the troubling decline in educational quality and internalefficiency which has accompanied the rapid expansion of enrollmentsduring the past decade. As a major donor with a long history ofinvolvement in education and training in Lesotho, the Bank aims, throughcontinued financial and technical support for the sector, to consolidateand expand on past successes, while also supporting Government's effortsto more consciously direct sectoral development. The project proposedin this report (and the preparation process associated with itsdevelopment) is the main vehicle by which we hope to achieve these aims.In addition, beginning in FY93 we plan to undertake, jointly withGovernment, a more detailed study of employment and training which wouldtake into account domestic and South African political and socio-economic developments which can be expected to have a major impact onjob opportunities and training needs of the Basotho people.

III. GOVERNHENT STRATEGY AND FIVE-YEAR ACTION PLAN

3.1 To address the key issues outlined in Chapter II and work towardsthe goals outlined in Chapter I, Government has developed and conditted itselfto a comprehensive sectoral strategy and action plan covering the Fifth Planperiod (1991/92-1995/96). The reform program was developed through aniterative, consultative process, taking into account (a) Government'sobjectives in the sector, (b) the requirements of the sector, (c) resourceconstraints, (d) implementation capacity, (e) the prospects for the overalleconomic and budgetary picture over the next 5-7 years, and (f) thefeasibility of proposed policy adjustments taking into account consensus-building and political economy issues. This Chapter describes in some detailthe main features of the strategy and associated five-year action plan, whichform the foundation for the project proposed in Chapter IV.

A. Sectoral Ob ectives and Expenditure Plan

3.2 As indicated in Chapter I, the Government's overall objective foreducation sectoral development during the Fifth Plan period is to emphasizeimprovements in quality and internal efficiency at all levels of the education

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system, while de-emphasizing further expansion except where absolutelynecessary. Consensus on this objective was reached after extensive discussionand debate within Government in recognition of the serious problems of wastagein the existing system and the financial and institutional constraints thatpre,clude further major expansion on a sustainable basis. The main agenda forthe Plan period has been summarized in a detailed list and timetable ofactions to be undertaken, as set forth in a Letter of Education DevelopmentPolicy with an attached matrix of specific objectives and measures. Thisletter, signed by the Minister of Finance on behalf of the Government andprepared in consultation with the MOE, is included in Annex 2, with the matrixattached. In addition, the Government (i.e., MOE) has prepared a moredetailed sectoral development plan and an associated estimate of investmentand incremental recurrent expenditures (including recurrent expendituresrelated to improving the effectiveness of past investments). This MOE five-year sectoral development plan was approved prior to credit negotiations. Theexpenditure plan and the action program are, by design, and of necessity,closely interlinked. The expenditure plan supports and facilitates thereforms, and vice versa. Each depends for its success on the satisfactoryprogress of the other.

3.3 The policy and plan package proposed for the five-year periodconstitutes a serious attempt by the Government to begin to address theprincipal problems and issues in the sector, as outlined in Chapter II. Whenfully implemented this reform package is expected to improve:

o quality, by improving facilities, addressing issues of teachermorale, deploying more teachers, increasing learning materials andinstituting curriculum improvements, and strengthening assessment;

o efficiency, by reducing primary dropout and repetition rates,reducing numbers of small uneconomic secondary schools, makingmore intensive use of facilities and teachers at TVE institutionsand reducing non-teaching overhead at NUL;

o resource allocation and equity, by increasing the share ofeducation resources devoted to the primary level whereexpenditures per pupil are excessively low and reducing relativeallocations at NUL;

o sectoral management, by rationalizing the central MOE structure,establishing an HOE presence at district and local levels,increasing community involvement in school management, andestablishing a more explicitly contractual relationship betweenthe Government and proprietors; and

o access, especially to technical training, through systematizingevening programs for out-of-school youth and adults andstrengthening trade-testing as a means of acquiring certifiedtechnical and vocational skills.

3.4 The associated expenditure plan consists of approved targets forinvestments and recurrent spending by the central Government for the educationsector during the Fifth Plan period. Its parameters were set taking intoaccount: (a) sectoral recurrent resource needs to make past investments more

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effective as well as to absorb incremental recurrent costs of proposed FifthPlan investments; (b) the likely future growth in public budgetary resources(especially recurrent resources) V; (c) realistic estimates of likely levelsof donor assistance for education during the Fifth Plan period; (d) therecommendations of a recent (1988) public expenditure review and successivePolicy Framework Papers (PFPs) with regard to appropriate levels ofexpenditure on education; and (e) the possible 'mpact on other sectors ofsubstantial increases in education sector spending (to avoid a "crowding out"effect). In line with established Government priorities, the proposedexpenditure plan devotes about 40 percent of investment resources to primaryeducation, with the remainder being allocated among activities aimed atdeveloping other levels of the education system, including necessaryactivities to improve sectoral management and strengthen the teaching force.Specifically, about 41.5 percent of investment resources are to be allocatedto primary, 12.1 percent to secondary, 13.6 percent to TVE, 3.2 percent toNUL, 12.9 percent to strengthening sectoral management, 11.2 percent toteacher training and the remaining 5.7 percent to a range of smaller programssuch as early childhood development, non-formal education and specialeducation.

3.5 Additional recurrent resources allocated to education in the firstyear of the Plan period will be highly concentrated on improving existingteachers' conditions of service and on recruiting about 260 additionalteachers for primary. In subsequent years, the main additional costs will beassociated with continued recruitment of new teachers to avert deteriorationof pupil:teacher ratios in primary education, reorganizatic' anddecentralization of the MOE, and incremental vehicle and equ.pment operationand maintenance costs associated with new investments. Proposed improvementsin sectoral management, especially strengthenir.g of district level educationmanagement and improved inspection and teacher support/guidance, will alsoconsume incremental recurrent allocations. By the end of the plan period someactivities now financed through the investment budget (e.g., refreshertraining for teachers and school administrators and production/disseminationof curricula and instructional materials) will also need to be financedregularly through the recurrent budget. Annex 3 provides further informationregarding expenditures on education in Lesotho.

3.6 To accommodate these recurrent resource requirements, Governmentexpects to substantially increase recurrent allocations to education over thenext five-year period. In part, this increase is feasible because of expectedgrowth in the total national recurrent budget (estimated to be 4.2 percent perannum on average in real terms during the Fifth Plan period). In addition,the Government, given its commitment to education, plans to increase the shareof the national recurrent budget devoted to the operation of the MOE-supervised education and training system to about 24.2 percent by the end ofthe Fifth Plan period. Besides a real increase of 54.4 percent anticipatedbetween 1990/91 and 1991/92 (mainly to accommodate a large, one-off increasein teachers' salaries and benefits), it plans during the remaining four yearsof the Plan period to increase real recurrent allocations to education at an

6/ Based on projections developed by an IMF/World Bank team working withthe Lesotho Governnent on public expenditure targets associated with anIMF Extended Structural Adjustment Facility (ESAF).

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average annual rate of at least 4 percent. These projected increases and theshare of education in the total are in line with recommendations included inthe Bank's 1988 Public Expenditure Review and the PFPs developed in concertwith the IMF SAF and ESAF. They are also in line with sectoral recurrentresource needs as described in para. 3.5 above.

3.7 WiLh regard to intra-sectoral allocations, the Government intendsto make a concerted effort to increase the share of primary education --including primary teacher training and strengthening of administration inareas related to supporting primary education -- within the total MOE budget,while restraining growth in recurrent spending for university education. Itplans, therefore, to devote a minimum of 70 percent of the incremental realrecurrent resources allocated to the MOE to the primary subsector and, at thesame time, to allow no real growth in the MOE recurrent grant to NUL. Theseplanned measures would largely address the sectoral financing issues discussedin para. 2.19, helping to improve the financial base upon which the successfulimplementation of much of the five-year action plan rests. Given theimportance of the sectoral and intra-sectoral recurrent expenditure targets tothe successful implementation and sustainability of the Five-Year Plan (and,hence, the proposed project), assurances were obtained during negotiationsthat Government would allocate resources to education as planned, inaccordance with its letter of development policy and associated policy matrix.

B. The Five-Year Sectoral Action Plan

3.8 The sectoral action plan covers each level of the education andtraining system, from early childhood education to university. The policies,strategies and action programs agreed on by Government with respect to most ofthese areas and presented in summary form in the policy matrix are discussedin this section. Activities proposed in areas such as early childhoodeducation, special education and non-formal education are not, however,described in this section as they have little bearing on the project proposedin Chapter IV.

Primary Education

3.9 Government's strategy for working towards the year 2000 target of"education for all' involves, during this plan period, a concerted effort toreduce the unacceptably high levels of wastage which characterize the systemat present -- before possibly embarking on further expansion of enrollmentsduring the next plan period (1996/97-2000/2001). The current plan thushighlights the need for a number of interlinked initiatives aimed ataddressing the major subsectoral constraints described in Chapter II. Theseinitiatives are: first, to reduce overcrowding by providing additionalphysical facilities, recruiting more teachers, limiting repetition, andreducing the nuwbers of under- and over-age pupils6; second, to improve the

7/ At present the primary education system includes a very high proportion(25 percent) of under- and over-age pupils, who tend to swell classes, areoften bored as learning materials are not targeted to their age group (withconcomitant discipline problems), and move in and out of the education system,contributing substantially to the high repetition and drop-out rates.

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quality of instruction by streamlining the curriculum, supplying moreinstructional materials, improving assessment and improving teachers' skills;and third, to improve loccl level school management. With the exception ofmanagement and teacher recruitment issues which are discussed later in thissection (paras. 3.33 and 3.36), further details of the planned actions arespelled out below:

3.10 Phvsical Facilities. While Government's long-term goal is toreduce pupil:classroom ratios to 40:1 from their current levels (80:1including church halls), implementation capacity and financial constraintspreclude achievement of that target during this plan period. Indeed, givenexpected rises in numbers of pupils enrolled in primary schools as a result ofcontinuing high population growth, substantial effort will be required inbuilding new classrooms and rehabilitating existing ones simply to preventfurther deterioration in the pupil:classroom ratio. For this Plan period,therefore, MOE's main target is to prevent further deterioration ofpupil:classroom ratios1. With this objective in mind, and taking intoaccount that 14 percent of primary pupils (48,160) are without any classroomsat all, the MOE intends, during the next five years, to build 850 classrooms,in an effort to provide classrooms for all pupils currently taught outdoors as-jell as provide additional classrooms to especially overcrowded schools. Inaddition, in order to facilitate refurbishing of dilapidated classrooms, MOEwould initiate a program to provide materials or cash to local communitieswilling to contribute their own labor to classroom rehabilitation, givingpriority to those identified by a proposed school mapping exercise as most inneed of repairs. Provision will also be made for construction of latrineswhere required, either through a community self-help approach or by includinglatrines in construction contracts when new classrooms are built. Finally,it is planned to provide furniture for all new classrooms as well as forexisting classrooms not equipped with desks and chairs. The overall objectiveof the planned physical facility program is to relieve constraints related toovercrowding at primary and especially at lower primary levels. Therefore,given past experience of diversion of government-provided facilities byproprietors to Standards 4-7 (or as the basis for starting-up secondaryschools), formal agreements would be signed between the MOE and each schoolconcerning the use and maintenance of facilities provided.

3.11 Curriculum and Instructional Haterials. In the area of thecurriculum, Government's policy and strategy for the Fifth Plan has two mainthrusts: (i) to strengthen teaching of basic skills at all levels, butespecially in Standards 1-4; and (ii) to encourage teaching of practicalskills in order to encourage a positive attitude towards work in children andprepare them for productive self-employment. With regard _o the first ofthese objectives, Government intends to draw up new curriculum policyguidelines, including a comprehensive national time-table, followed byrevision of most of the core syllabi for primary schools. Since the existingguidelines were issued in 1967, there have been major clhanges in primaryschooling which have affected the number of subjects offered, the content of

8/ Although, of course, modest improvements are likely to be seen towards theend of the Plan period (and more substantial improvements during the next Planperiod) as policies to reduce repetition and exclude over- and under-agepupils from formal, Government-supported primary schools begin to take effect.

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different subjects, and the amount of time needed per subject. The newcurriculum guidelines (to be drawn up by the MOE's National CurriculumCommittee - NCC - in collaboration with other relevant agencies) would reflectthese changes, specifying the core subjects for primary schools and the amountof time to be allocated for each subject. Upon completion of the guidelines(by Mid-1992), the National Curriculum Development Center (NCDC) would revisethe core syllabi for primary school subjects, iocusing mainly on "trimming"each syllabus so that the content can be effectively covered in the timeavailable per subject. improvements in the design of each syllabus will alsobe instituted, and teachers' guides and pupil workbooks developed fordistribution to primary schools. In addition, successful initiatives begun inthe Fourth Plan period will be continued, including radio instruction programsfor English and Sesotho and production of a quarterly Sesotho supplementaryreader for Standards 1-3, entitled 'Mahlaseli". All materials will bedeveloped by NCDC in collaboration with the Instructional Materials ResourceCenter (IMRC) for distribution through the School Supplies Unit (SSU), whichmanages the ongoing textbook revolving fund scLeme. The capacity of each ofthese three institutions will also be strengthened during the Plan period toensure satisfactory completion of the targets.

3.12 With regard to Government's second objective of strengtheningpractical skills, the Plan's main focus will be on teaching of agriculture,following relatively successful initiatives in the last Plan period to developand disseminate instructional materials relating to practical skillsdevelopment in a range of subjects, including Art and Crafts, Home Economics,Health and Social Studies. Within agriculture, the MOE intends, with supportfrom WFP, to help pupils become proficient in self-supporting agriculturalactivities -- through a phased withdrawal of food aid from primary schoolfeeding programs, in concert with provision of materials, tools and technicaladvice to enable the schools, supported by school committees, to undertakeself-reliance projects such as gardening, tree planting, piggeries, poultry-keeping and the like. Over the Plan period these self-reliance projects areto be initiated in a total of about 300 schools, and given the emphasis onschool committees/community involvemeut are expected to reinforce parents'role in local level school management. Recognizing, however, that similarschool self-reliance agriculture programs in other countries have been muchless than successful in achieving objectives of inculcating a positiveattitude to physical work in pupils and the risk that agriculture initiativ3scould detract from time spent in acquiring basic literacy and numeracy skills,Government intends during 1993/94 to undertake a thorough, independertevaluation of the self-reliance program to decide on its overall desirabilityand/or the need for changes in its design if it is to be continued.

3.13 Pupil Assessment. The Primary School Leaving Eamination (PSLE),administered at the end of the primary cycle (standard 7), is the main vehiclefor evaluating primary student achievement in Lesotho's present system.Traditionally, the main purpose of the PSLE has been to Oration' secondaryschool places, so that the general orientatLJ. of the test has been norm-referenced rather than criterion-referenced (i.e., aimed at evaluating studentachievement in relation to the expectations of the curriculum). During thepast five-year period, MOE has made efforts to modify the test's orientationin the latter direction as well as to upgrade its reliability as a testinginstrument, through developing a computerized item bank of test questions inEnglish, Sesotho, Mathematics, Social Studies and Science based on items

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prepared by teachers at special workshops and subsequent editing at NCDC'sTesting and EvaLuation Unit. During the Fifth Plan period the focus willshift to improving the validity of the PSLE, to help ensure that theexamination reflects adequately t a goals of the curriculum. In addition, by1994, a transfer would be effected of the PSLE from NCDC to the ExaminationsCouncil of Lesotho (ECOL), following completion of a study to determine thesize of the subvention to be paid by MOE to ECOL for administering theexamination. In addition, an important focus during the Fifth Plan will be tointroduce a sound system of competency-based continuous assessment in primaryschools, building on end-of-level tests developed and disseminated during theFourth Plan for Standards 4-6 in English, Mathematics and Sesotho. In'991/92, therefore, existing draft end-of-level tests will be trialled,printed and distributed in conjunction with in-service training for teachersin the use of the tests. For the lower primary standards, skills check-listsin English, mathematics and Sesotho will be pre-tested, modified, printed anddistributed, to be used by teachers in evaluating and diagnosing learningproblems. The resulting improvements in teachers' pupil assessment capabilitywill be essential to MOE efforts to reduce repetition in primary schools.

3.14 In-Service Training for Teachers. A major effort to providesystematic refresher training for teachers would be made during the Planperiod, focusing on both strengthening pedagogical skills and disseminatingnew initiatives in curriculum and assessment. In-service training would beprovided through both a school-based approach and through the development of aprogram of special in-service courses to be coordinated by the central MOEinspectorate. Under the first approach, a specially-trained "DistrictResource Teacher" (DRT) will be placed in a selected primary school in eachsub-district to provide ongoing guidance to staff at the base school andneighboring schools as well as receive special funds to hold workshops onselected topics related to teaching-learning methods. Under the secondapproach, short seminars would be organized (principally during schoolvacations) on a number of specialized topics related to curricular and testinginnovations to be introduced in schools, with teachers nominated toparticipate in accordance with a systematized schedule. Apart fromstrengthening teacher skills, the planned in-service programs would also helpto improve teacher motivation and morale by helping to reduce the professionalisolation cited by many as a source of dis_.tisfaction.

3.15 Efficiency. The quality improvements resulting from theinitiatives described above (together with Plan initiatives related to raisingteacher morale, teacher availability and improved local level schoolmanagement -- paras. 3.34-3.37) can be expected to raise the efficiency ofprimary schooling in Lesotho -- defined as cost per vupil completing theprimary cycle -- by enhancing learning and hence lowering pupil attrition andrepetition. In addition, recognizing that internal efficiency is unacceptablylow (para. 2.7), Government intends during the Fifth Plan to reinforce thiseffect with specific policy measures targeted directly at reducing repetitionana drop-out. Firstly, in view of research findings that repetition, beyond acertain point, does not add much to pupil learning (and may have unintendednegative effects on self-esteem, with consequent damage to teachability andinitiative), the MOE intends as of 1993/94 to introduce a policy of limitingrepetition to a maximum of twice per 7-year primary cycle, focusing initially

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on lowlands arease. It will then be the choice of the parents to eitherwithdraw the child from school or authorize promotion. Secondly, given that ahigh proportion of drop-out and repetition is attributable to over- and under-age pupils, who are less able to benefit from a curriculum and instructionalmaterials targeted to a different age group, the MOE plans to reduce the verywide pupil age-spread now apparent at primary level. To this end, the MO;would, by the start of the 1992 school year promulgate a policy prohibitingenrollment of children under 6 years as verified by a birth or baptismalcertificate; and, by 1994, prohibit also the acceptance to Standard 1 ofchildren older than 8 years.

3.16 Those excluded from formal primary school under the over-agepolicy would have the option of enrolling in non-formal literacy and numeracyprograms currently .,ing offered by LDTC, the materials and pedagogicaltechniques for which are designed explicitly for older children andadolescents. In addition, a comprehensive study of wastage in primary schoolis planned in 1991/92 to identify other policies, incentives or programchanges that could further ameliorate present problems. The policy changesalready planned should nevertheless have a substantial impact on reducingovercrowding at primary schools, with beneficial results on the quality ofeducation of the children still enrolled. Monitoring of school compliancewith the new policies as well as existing ones associated with the opening ofunauthorized schools would be undertaken by the strengthened district levelMOE inspectorates, and effective sanctions (i.e., fines) wc.uld be applied incases of violations by school proprietors. It is anticipated that a well-targeted public information campaign would be implemented prior to theintroduction of the policy regarding over-age enrollment to ensure thatparents and schools would be prepared for it.

Secondarw Education

3.17 During the Fifth Plan period, the Government's reform strategieswithin the secondary subsector will concentrate on the same general areas asin primary education, although the amount of resources devoted to the primarylevel will be far grezter over the five years. In order to address thequality and efficiency issues identified in paras. 2.9-2.10, policies andinvestments during the plan period are aimed at strengthening theteaching/learning and pupil assessment process, rationalizing the number ofsecondary schools per catchment area and the subjects taught within schools,and management improvements. The principal activities in these areas aredescribed below.

3.18 The Teaching-Learning Process and Assessment. In the secondarysubsector, efforts to improve the teaching-learning process will focus onmathematics, science and English and involve: (a) curriculum development; (b)improving the physical environment for teaching where necessary; and (c)expanding school-based professional support to teachers. Curriculumdevelopment efforts for the Fifth Plan will concentrate on the junior

9/ In highlands areas physical access to schools for many children isdisrupted during the wet season, implying that children are forced to missschool for extended periods -- thus necessitating repetition.

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secondary (Forms A, B and C) level. Extensive development is not envisaged atthe senior secondary (Forms D and E) level which received greater attentionduring the Fourth Plan, although modification of the syllabi for some subjectswill be undertaken as necessitated by the ongoing localization of the COSCexamination. In addition to syllabus revision and streamlining for eachjunior secondary subject, it is planned to develop and disseminate detailedteachers' handbooks designed to recommend teaching methods and provideguidance on the scope and sequencing of subject matter to be taught. In someinstances, for example, senior secondary science, it is planned to reduce thenumber of possible electives in keeping with Lesotho's resource constraints.In these cases curriculum development work, including teachers' guides, wouldbe undertaken at the senior secondary level during the Fifth Plan period.With regard to secondarv school physical facilities, the principal aim for theplan period is to continue efforts to provide specialized facilities such aslaboratories and workshops where these are lacking, to strengthen the teachingof science and practical subjects. Between 1991-95. a project supported byAfDB would assist Government to build 40 science laboratories (includingequipment, furniture and materials), 30 practical studies workshops inaddition to 20 classrooms in schools with high enrollment and a clear need forextra space. Finally, an ongoing ODA assisted project which provides school-based professional support to mathematics, science and English teachers willbe expanded during the Fifth Plan, using a modified approach which wouldinclude both subject and management training.

3.19 In the area of examinations, the main aims for the Fifth Planwould be to continue and intensify ongoing initiatives to strengthen theJunior Certificate (JC) examination administered by ECOL, through technicalassistance and training for ECOL staff and through extending the range ofexamination formats. In addition, efforts will continue to make theexamination reflect more accurately the objectives of the curriculum. ECOL'scapacity to provide feedback irformation on examination results to teacherswill also be extended so that teachers will have better guidance on areas ofthe curriculum requiring extra attention. For the COSC examination, the mainthrust during this Plan period (assisted by the Cambridge Syndicate) will heto undertake preparations for the localization of the exam in 1995. Duringthe Fifth Plan this will involve training of Basotho markers and increasedmarking of exam papers in Lesotho, under the guidance of Cambridge Syndicatesupervisors, and identification and training of Basotho teachers and othereducation professionals in the setting of exam papers. With regard tocontinuous assessment, the objective at JC level is to incorporate studentscores for regular practical work in the science subjects into the final JCscience grade. Moreover, it is planned to streamline the existing quarterlytests at secondary. While providing a form of continuous assessment, thetests are presently very cumbersome, with schools taking up about 12 weeks ofpotential instruction time in preparing for, administering and marking thetests. During the next five years, a series of measures will be adopted toshorten the time spent on the tests, to allow more time to be spent oncovering the curriculum more thoroughly during the school year.

3.20 Increasing Efficiency in the Secondary Subsector. As discussed inChapter II, to date, growth in the number of secondary schools has occurred inan unregulated and unplanned manner, with many of these schools now competingfor students in overlapping catchment areas. The Government plans, therefore,to begin the process of rationalizing the secondary subsector through the

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following means: (a) establishinig and strictly enforcing criteria for openingsecondary schools (draft criteria include the following: serving a populationof at least 200 students with no alternative schooling opportunity, access tosufficient numbers of furnished classrooms and water, and an active SchoolBoard); (b) identifying and closing schools which have been illegallyestablished -- or at a minimum, withholding public funds from these schools;and (c) by 1993, beginning to allocate public resources for teaching postsstrictly based on a minimum studentsteacher ratio of 25sl. In addition, inview of doubts raised regarding the efficacy of incorporating TVE at thesecondary level, the MOE would by 1993 undertake a thorough independentevaluation of the ongoing Oiversified secondary program to determine its cost-effectiveness and its impact on other aspects of the curriculum. Based on therecommendations of the evaluation, the MOE would take a decision as to thecontinuation or modification of the existing program.

Technical and Vocational Education

3.21 Government policy attaches high priority to the development oftechnical and vocational skills as a key element in ensuring the developmentof Basotho industry and creating local employment opportunities, especially inlight of the declining employment availability for Basotho workers in the RSAmines. However, cognizant of the high per student costs of TVE offeredthrough the formal education system, and the potential for mismatch betweensuch training and industrial needs, Government intends during the Fifth Planperiod to move cautiously in expanding formal training capacity (focusing moreon improving its relevance, quality and cost-effectiveness) with expansionoccurring mainly through strengthening of trade-testing to promote efficientdevelopment of skilled manpower.

3.22 Tecbnician and Craft Level Training. The main activities plannedfor the next five years with regard to formal TVE have the followingobjectives: (a) to strengthen the quality of technician training (offered atLP) in the areas of architecture and civil, mechanical and electricalengineering; (b) to standardize and improve the relevance of curricula forcraft courses being offered at LP and two church-owned institutions andencourage the introduction of evening classes to expand output withoutexpanding physical facilities; (c) upgrading existing TSTC courses andinitiating a range of measures to lower that institution's unit costs; and (d)introduction of evening classe! in institutions with TVE facilities to makemore intensive use of the facilities and thereby lower unit costs. Withregard to the first of these objectives, the main activities planned areincluded in an ECIGTZ/ODA-funded project which is aimed at upgrading ofpractical training through teacher fellowships, technical assistance, revisionof course curricula and syllabi, upgrading of LP workshop facilities, bettermonitoring of industrial attachments and improving (currently poor) hostelaccomnodations to help reduce student drop-out. It is also planned tointroduce a new course in land surveying by the 1994 academic year. Withincraft training, efforts will be focused on developing a standardized modularcurriculum for four courses (bricklaying, carpentry, automotive mechanics andelectrical installation) anJ on unifying end-of-course assessment to permitoffering of a national certificate with regional recognition. The proposedmodular approach is intended to allow for greater servicing of industry needsas it would permit enrollment of employed workers for specific modules duringshort-term block releases. Activities planned at TSTC (the main TVE

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institution in the highlands) include upgrading of woodworking, construction,met.lworking, textile fabrication and leatherworking courses to nationalaccceditatien lev 1, expanding enrollments by at least 50 percent to reduceunit costs and service unmet highlands demand for skilled workers andintroduction of cost-offsetting activities (e.g., poultry keeping and cementbloc production). Evening courses would be introduced in about 12instituitions, to accommodate industrial needs and increase output relative tocapacity.

3.23 Skills Certification/Trade Testing. A number of developmentalproblems have been identified in the skills certification/trade testing areaas a result of experience during the Fourth Plan period, when nearly 800 testsin 9 trades were carried out. Chief among these problems ares (a) theinability to meet demand for tests; (b) the absence of capacity/mechanisms toanalyze the reasons for failures and to design and implement supplementarycourses; (c) the unduly burdensome logistics involved in organizing the testsat three locations, given shortages of supervisory staff; and (d) the limitedcapacity for research and development (and formulation of adequate responses)which has inhibited attention to a number of fields, e.g., in commercialareas. It is therefore intended during the Fifth Plan period to establish acentralized and specializid skills certification/industrial training centerwhich would offer those elements of testing and certification which are atpresent not being dealt with, and which wtould expand and develop skillscertification/trade tes...ing within Lesotho. The Centre would, over time, alsooffer in-service training courses in selected areas of industry and commerce,a need frequently voiced by industry and trade representatives in both thepublic and private sectors. It is planned that the centre would recover ahigh proportion of its operating costs from test and course fees, thus notadding excessively to the MOE's recurrent cost burden.

National Universit.y of Lesotho

3.24 NUL priorities for the Fifth Plan period are: (a) to improve thequality of existing academic programs before embarking on any major expansion;(b) to reduce non-teaching overhead as the primary means of containing growthin unit costs; and (c) to strengthen NUL government through legislative andother means. These priorities were established within a framework provided bythe Government which specifies that it would not allow any real increases inthe public recurrent grant (including student loans) to NUL during the comingfive-year period, so that recurrent costs associated with any new investmentswould need to be covered through cost savings in existing operations,increases in fee levels for tlhe current student body, and/or generation offunds from private companies or other sources. Speciric planned activitiespertaining to the priorities are discussed in the following paragraphs.

3.25 Quality Imfirovements. The principal goal with regard to qualityenhancement is the introduction of a subject or a modified course unit systemin place of the current hybrid system which, as discussed in para. 2.11,hinders students from undertaking a coherent program of studies and undulyabsorbs faculty time in administration and paper-work at the expense oftutorial and research activities. The proposed modifications to the academicprogram, to be introduced in academi: year 1992/93, wou."d not only helppromote student competence in at least two disciplines but allow for more

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regular interaction between students and faculty with regard to academicperformance, and simplify timetabling and associated paper-work. Related tothis change, NUL plans, inter alia, to adopt a comprehensive written academicstaffing plan b, 1992193, establish firmer controls over teaching schedulesand enforce expectations of sound teaching, research and University service.In addition, investments would be made to facilitate faculty interaction onacademic and pedagogical subjects and to promote staff development through thecarrying out of research activities and further overseas training. Libraryservices would also be improved through acquisition of additional materials,computerization of record-keeping and training of staff. Finally, in view ofthe severe constraints in laboratory space for science teachiag, expansion ofthe existing laboratory will be undertaken during the Fifth Plan. Ifincremental funds become available as a result of planned cost containmentmeasures, these will be expended to introduce post graduate courses inselected priority areas subsequent to 1993194.

3.26 Cost-Containment. The NUL plan contains a number of activitiesdesigned to contain or lower unit costs, generate savings or reorganizeexisting functions with a view to increasing their efficiency. The main onesare as follows: (a) temporarily freeze proposals for new academic programs andcreation of academic and non-academic positions; (b) maintain the 1990/91enrollment levels in all areas except for increases in Science and Agricultureuntil 1993/94 and increase the total NUL enrollment to 1200 by 1995/96; (c)increase the minimum class size from 3 to 5 students and achieve a reasonablestaff/student ratio of 1:12, except in Science and Agriculture (1:10); (d)require NUL institutes to become 50 percent self-financing by the end of theFifth Plan; (e) continue to implement the proposed early retirement programfor non-teaching staff, freeze proposals for new admlnistrative programs until1993/94 (except the MIS) and reduce operating costs in non-essential areas;(f) by 1992/93 review and revise existing remuneration and benefits for NULstaff, including reducing subsidies for housing, commuting allowances andeducation allowances; (g) improve insulation in teaching and living areas togenerate long-term savings on energy costs; (h) review existing service units(e.g., laundry and garage) with a view to eliminating those that are afinancial drain on NUL and tighten cost controls in areas of NUL operationsuch as purchasing and external contracting procedures; and (i) undertake acomprehensive master plan to improve NUL physical planning.

3.27 NUL Government and Management. With regard to NUL government, themain objective for the Plan period is to approve a revised univeraity orderand statutes aimed inter alia at: (a) revising the structure and compositionof the NUL Council to help ensure its independence from internal universitypolitics; (b) to streamline procedures for personnel management to enablequicker action as necessary (including strengthening discretionary powers forthe administration; and tc) reducing the number of senate committees from thecurrent number (22) to about 9 and reducing their size where feasible.Activities to improve NUL management would include establishment of acomprehensive management information system (to be supported by the DutchGovernment) concerning both the academic and non-academic elements of NULactivities and establishment of a Development and Planning Office responsibledirectly to the Vice-Chancellor to promote coordination between academicplanning, staff development and training, and university physical development.Enactment of the revised NUL Order and Statutes is a condition of crediteffectiveness.

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Monitoriaa and Evaluation

3.28 The MOE, through its statistics unit, collects extensive data onthe education system -- but these data frequently remain in tabular formatwhich is not especially useful in judging the effectiveness and efficiency of Lprograms. Recognizing that the information, if analyzed in terms of keypolicy questions, could be tremendously useful to decision-makers in choosingamong policy options, the Government intends during the Fifth Plan to make aserious effort to put in place a system to allow for regular monitoring andevaluation of the degree to which (and the process by which) (a) the targetsof the Plan are being achieved, and (b) the educational system is meeting itsqualitative and quantitative goals. Towards the first of these ends, a basicmonitoring and evaluation system will be created within the Planning Unit tohelp Heads of Departments develop strategic annual plans in accordance withthe terms of the Plan. Guidelines for sector-wide planning will be preparedby the Ministry. In addition, periodic reviews will be conducted to assessprogress in achieving targets and to identify and make necessary policyadjustments. Areas requiring collaboration among Department heads will beidentified. Technical assistance will be obtained to develop competence inpolicy analysis, planning, coordination and task-based budgeting. Tostrengthen its capacity to undertake the above activities, the Planning Unitwill be strengthened by the addition of staff and by training.

3.29 In order to achieve the second objective above, and to helpestablish a base for development of a comprehensive system for the ongoingevaluation of the entire education and training system, the MOE plans, duringthe next five-year period, to concentrate its attention on improving themonitoring of primary schooling. This will involve the conduct of eightinterrelated tasks as follows: (a) development of a long-term plan for theeventual implementation of a comprehensive monitoring and evaluation systemfor education and training with a special focus on the requirements forprimary education monitoring; (b) assessment of the current capacity forcontinuous monitoring and incremental needs in terms of personnel and otherresources; (c) conduct of training for teaching personnel and local, districtand central level managers in the concepts and practice of educationalefficiency, the use of education data and the role of efficiency criteria inmaking educational and policy decisions; (d) using data from the newlyavailable primary school end-of-level tests, skills checklists and PSLEresults, incorporation of measurement of student achievement across a broadrange of curricular taskst (e) designing and carrying out of nationalassessments of pupil achievements, school conditions and teachers' attitudesand perceptions to inform policy-makers and to provide baseline data againstwhich changes over time can be monitored; (f) improving disaggregation ofroutinely-collected data on educational inputs so that breakdowns areavailable by district, by school etc. and (g) implementation of a scheme toprovide regular feedback (in user-friendly form) to the four levels ofpersonnel identified in (c) above. The Evaluation Unit within NCDC, togetherwith the MOE Planning Unit and, where necessary, the Inepectorate, will takethe lead in organizing these activities.

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Sectoral Management

3.30 Government's strategy for the Fifth Plan lays considerableemphasis on resolving key management issues which have hampered thefunctioning of the education system for several years. Responding to theissues identified in Chapter II (para. 2.17), the Government's prioritiesinclude: (a) reorganization of the central MOE, including modifying the gradestructure and standard operating procedures; (b) strengthening the MOEpresence at regional and district levels; and (c) clarifying the roles andrelationships between the MOE, school proprietors and parents.

3.31 Central MOE Reorganization. Details of the proposedreorganization of the MOE, the plan for which was approved by Government priorto credit negotiations. are given in Annex 4. The main features of theplanned restructuring at the central level are: (a) the integration of projectunits into the mainstream MOE structure; (b) the creation of a senior coremanagement team comprising the Principal Secretary, a second tier of seniordecision-making staff designated Chief Education Officers (CEOs) withoperational responsibility for educational management (mainly inspectionfunctions), curriculum services, teaching services and support servicesrespectively, plus the head of a strengthened planning unit; (c) granting ofautonomous status to NTTC and LP to relieve the MOE of day-to-day managementresponsibility for these large institutions; (d) the introduction of arational grading structure linked to function and type of decision-makingresponsibility; and (e) the institutionalization of a new management style andprocedures, aimed primarily at moving away from the present overcentralizedapproach to decision-making and towards greater delegation. During the FifthPlan period, the MOE plans to enter into a twinning arrangement with a similarinstitution abroad to facilitate the implementation of the plannedreorganization.

3.32 NOE Decentralization. The proposed decentralization of the MOEwould involve substantial strengthening of the MOE offices at district level.These strengthened district inspectorates will be the main vehicle not onlyfor inspection of primary and secondary schools but also for the inspection ofnon-formal education and for the discharge of a range of administrativefunctions that can be more effectively discharged at a level lower than thecentral MOE. Within each district, the senior education officer (SEO) --reporting directly to the CEO Educational Management at central level -- wouldbe responsible for organizing an inspection program per district, including adefinite inspection schedule. Inspection would be carried out by teamsassembled under the authority of the SEO. The teams would be concerned withremedial action in schools and thus incorporate locally-based NTTC staff,support teachers and managers as necessary. As most of these individuals arealready located at district level (albeit with little encouragement to date tocooperate with each other) no significant increase in personnel is foreseen,at least in the short-term, although complementary resources will benecessary. In addition to inspection, it is intended that administrativefunctions such as signing of teachers' contracts and assisting in the audit ofschool accounts would also be transferred to the district offices during theFifth Plan period.

3.33 Roles of HOE, School Pro2rietors and Parents In Education. Asdiscussed in para. 2.17 (b) the continued failure to forge an effective

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partnership between the three main actors in the management and financing ofLesotho's education system has contributed to significant inefficiencies inresource allocation and weak management of educational institutions throughoutthe educational system, but especially at primary and secondary levels. Planproposals to introduce explicit contracts with school proprietors for use ofphysical facilities and effective sanctions (i.e., fines or withdrawal ofpublic funds) for operation of unauthorized or sub-standard schools will helpto ensure that resources are used in accordance with national priorities inthe future. In addition, Government irtends to enact legislation early in theFifth Plan which would revise the existing educational act and include thefollowing features affecting the tri-partite relationships (a) that allmatters pertaining to the employment, management and placement of teacherswould be the direct responsibility of the MOE, with the TSC acting as anadvisory rather than executive body; (b) that each school would be required tohave a school board incorporating more representation than hitherto fromparents and the local community, in addition to church and MOErepresentatives; (c) that responsibility for day-to-day school managementwould rest with the headteacher (or headmaster/headmistress in the case ofsecondary) rather than with separately-appointed school managers. In supportof these measures, the MOE would, as already discussed, strengthen itspresence at the district level to assist in monitoring school compliance withthe new legal measures. It would also institute a comprehensive program forsupporting the community/parent role in educational management, decentralizesome teacher administration functions to the district level, institute well-designed training programs in school management (including simple financialaccounting) for existing headteachers and establish technical panels for theselection of new headteachers. Enhancement by Government of the revisededucation order is a condition of credit effectiveness.

Conditions of Service For Teachers and Teacher TrtininR

3.34 The planned changes in teacher management and local schoolmanagement (para. 3.33) will constitute a first step in addrsssing the issuesof managerial support for teachers discussed in para. 2.20. In addition,Government is strongly committed to: (a) improving teacher compensation andcareer development prospects; (b) increasing availability of teachers; and (c)increasing professional support through strengthening both pre-servicetraining and in-service guidance and training.

3.35 Compensation, With regard to compensation, highest priority will

be given to addressing the issue of teacher salary levels. By the start ofthe Fifth Plan, Government announced substantial pay increases for teachers,with the aim of achieving near-equivalence (if not parity) with remunerationlevels available in the civil service. This implies a substantial increase inthe Government's total recurrent allocation to education as indicated in thediscussion of the public expenditure plan. In addition, a career structure,based partially on seniority and partially on merit, has been adopted to allowcareer progression without the acquisition of further formal educationalqualifications. The new career structure involves the creation of seniorteacher and resource teacher posts at primary levels and recognition forheading departments (e.g., the science or social studies departments) atsecondary level. In addition, as previously noted (para. 2.20) steps hadalready been taken to include all teachers (including married women, who were

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previously excluded) in a pension scheme similar to the civil servants'scheme. A satisfactory teaching service salary and career structure waspresented to the Bank prior to credit negotiations.

3.36 Teacher Availability. Measures to address the issue of teacheravailability during the Fifth Plan ara closely linked to compensation andtraining issues (also of course to issues of recurrent resource availability).For example, it is expected that given the improved remuneration packages,teachers would be less anxious to leave the education system for jobs in othersectors or teaching positions outside the country's borders -- therebyreducing attrition and its severe impact on the teacher shortage. Inaddition, it is planned to expand enrollments (from about 600 to 1100) at NTTCin both the pre-service and in-service teacher qualification programs and todevote a large proportion of expected increases in education recurrentallocations to creation of additional primary teacher posts. To relieve theacute shortages of teachers in the remote highlands areas of the countries,monthly hardship allowances would be increased from a flat M 15 to aproportion of annual salaries, and housing would be provided for many of theseteachers using community participation approaches for construction. Duringthe Plan period, the MOE would provide building materials for a total of about150 houses, all to be constructed in mountain areas.

3.37 Teacher TraininR. The planned increases in teacher trainingenrollments will require expansion and rehabilitation of classrooms andstudent hostels at NTTC, given the inadequacy of existing facilities even forthe existing nunmbers of students. Therefore, physical construction at NTTChas been included in the MOE plan. Moreover, a number of activities areincluded to improve the quality of trainin& at NTTC, which offers both pre-service courses for primary and secondary teachers and an in-service course(Lesotho Inservice Education for Teachers -- LIET) aimed at providing basicteacher certification to unqualified primary school teachers. Upgrading ofthese cources (aimed specifically at targeting courses better to primaryeducation) will be undertaken over the next five years through: establishingseparate departments for primary pre-service and LIET training -- a necessarydevelopment given that teaching requirements for the two types of training aresubstantially different; gradually upgrading entry requirements to the pre-service primary program to ensure that most entering candidates have a COSC,rather than JC -- allowing more time to be spent on issues of pedagogy versussupplementation of basic academic skills; providing fellowships for furthertraining to staff of both the pre-service and LIET departments; and developingspecial curriculum modules aimed at inculcating pedagogical skills necessaryfor teaching the youngest children (Standards 1-3) and incorporating plannedMOE innovations in monitoring and evaluation, pupil assessment and curriculuminto the standard NTTC courses. As discussed in para. 3.14 refresher trainingfor employed qualified teachers would be coordinated by the proposedEducational Management Service of the reorganized MOE and be undertaken inaccordance with an annual plan derived from identified needs in disseminationof curriculum, assessment and other educational initiatives.

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IV. THE PROPOSED PROJRCT

A. Prolect ObJectives and Su =aEX Description

4.1 The overall objective of the proposed project is to assistGovernment in the implementation of its five-year actlon program, as lald outin the letter of development policy and detailed matrix of specific objectivesand actions (Annex 2). Project support would focus on (a) supportinginvestments aimed at increasing the quality, efficiency and relevance ofeducational programs at all levels of the education and training system, withparticular attention to primary education, and (b) helping to address the keymanagement, financing and resource allocation, and staffing issues whichconstrain overall sectoral performance. To the extent that the project isexpected to be parallel-financed by three of the external assistance agenciesmost active in Lesotho's education sector (IDA, USAID and EC), it is expectedto cover about 70Z of the investment portion of the action program as well asselected recurrent activities.

4.2 In suammary, taking into account likely contributions from otherdonors, the project would support the following actlvities included in theGovernment's five-year action plan and letter of development policy andmatrix:

(a) In basic education (primary and secondary levels):- construction of additional classroom and sanitary facilities

at primary level;- furnishing of new and existing classrooms at primary level;- activities related to curriculum development,

production/dissemination of instructional materials, andimproved assessment at both primary and secondary levels;

- refresher training for primary and secondary teachers;- implementation of policies aimed at reducing repetition and

enrollment of under- and over-age students in primary andrationalization of teacher grant allocations at secondary;and

- recruitment of additional teachers, principally at primarylevel.

(b) In teacher trainings- strengthening NTTC's institutional capacity and facilitating

expansion of teacher output; and- upgrading standards in primary pre- and in-service teacher

training programs.

(c) In TVE:- standardization of craft curricula;- introduction of evening classes at TVE institutions;- strengthening of skills certification/trade testing; and- policy studies.

(d) At NUL:- implementation of the subject system or modified course unit

system and related academic planning;

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- implementation of selected cost-containment measures in non-academic areas;

- staff development and research;- library computerization and stocking; and- improvements in physical planning and expansion of

laboratories for science teaching and research.

(e) In the area of sectoral managements- technical assistance, incremental salary costs and other

resources necessary to effect reorganization of the centralHOE;

- district offices, vehicles and equipment for decentralizingMOE operations;

- in-service training for teachers and management training forheadteachers and principals; and

- systems for improving program monitoring and evaluation.

B. Detailed Features

4.3 Given the close linkage between the proposed project componentsand the Government's Fifth Plan action program, described in-depth in ChapterIII, this section will focus mainly on the specific inputs to be providedunder the project for each activity, on the assumption that the rationale forthe activities and their linkage to identified sectoral issues (paras. 2.6-2.20) has already been sufficiently established in the preceding Chapter. Itshould be emphasized at the outset that the Government's letter of developmentpolicy in education, together with the matrix of policy measures and keyactions to be implemented (Annex 2), are viewed as an essential part of theproposed project, providing the framework within which the various projectcomponents have been judged to be viable and sustainable. Progress inimplementing the actions included in the matrix will, therefore, receivespecial attention throughout project implementation and project disbursementscould be suspended if the action program is judged to be unsatisfactorilyimplemented during proposed joint Government/IDA/USAID project reviews inMarch 1993 and September 1994, respectively. Given Government's strongcommitment to the action program, however, the risk is relatively low thatdisruption of the project will become necessary. The proposed project wouldhave five components as presented in the summary description in Section A.These are described in some detail in paras. 4.4-4.30 below.

Basic Education: Imuroving Quality and Efficiency (US$36.2 million)w1

4.4 This component would have six subcomponents as followst (a)improving school physical facilities; (b) developing curricula andinstructional materials; (c) improving student assessment; (d) providing in-service training for teachers; (e) recruiting additional teachers; and (f)supporting policy measures aimed at efficiency improvements.

4.5 Phsical Facilities. (US$21.7 million) The project will supportconstruction of additional classrooms, rehabilitation of existing classrooms

10/ Project costs cited in paras. 4.4-4.30 are base costs.

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and construction of sanitary facilities (mainly latrines) at primary schoolsin accordance with the program laid out in Government's five-year plan. Atotal of 850 new classrooms and 1,760 latrines will be provided during theproject's life, and an additional 200 existing classrooms will berehabilitated. About 40? of the new classrooms will be provided in the formof "shells", with local communities mobilized to provide materials and laborfor the walls. Through thus encouraging communuity participation in theconstruction of the schools, the project aims to both reduce constructioncosts and to facilitate the involvement of the surrounding community in schooldevelopment, and subsequently, maintenance. The remaining new classrooms willbe built entirely by private contractors as has been done in previous IDA-assisted projects in Lesotho. Taking into account past neglect of themountain areas in school construction programs, classroom and associatedlatrine construction will be undertaken in three phases, firstly focusing onthe most neglected highlands areas -- namely Quthing, Qacha's Nek, Mohale'sHoek and 60? of Mafeteng districts; secondly covering Butha-Buthe, Leribe andMokhotlong; and thirdly covering Maseru, Berea, Thaba Tseka and the remaining40? of Mafeteng district. Although, ideally, Thaba Tseka, an extremelymountainous region, should be included in the first phase, constructionsupervision requirements (dependent on roads communications) dictate that itbe included in the third phase, with the lowlands areas. Finally, furniturewould be provided for all new classrooms and for up to 502 of existingclassrooms which are currently unfurnished or inadequately furnished.

4.6 To ensure tl,e smooth implementation of the physical facilitiescomponent, staff of the MOE buildings unit created under the Fourth EducationProject (Cr-1512-LSO) would be maintained through support for 60 staffmonthsof architect's services, 60 staffmonths of the services of a contracts managerand funds for local support staff including a quantity surveyor, procurementofficer and a draftsman. In addition, funds would be provided for detailedsurveys of classroom requirements in each district. The project would alsosupport the development and production of MOE-school agreements to be used inensuring the use and maintenence of facilities in accordance with Planobjectives of relieving over-crowding in lower primary as a matter ofpriority.

4.7 Curriculum and Instructiona& Materials DeveloDment. (US$1.1million). In order to help strengthen the teaching-learning process atprimary level, the project would assist in three inter-linked areas previouslydiscussed in para. 3.11 above. These are: curriculum development and designof a national timetable; development and dissemination of instructionalmaterials and teachers' guides; and evaluation of the agriculture and self-reliance program. For the first of these objectives, the project wouldprovide about 24 staffmonths of the services of a curriculum specialist towork closely with NCDC in drawing up revised policy guidelines and anassociated national primary school timetable, development of teachers' guidesin the interpretation of the new curriculum guidelines, and helping tocoordinate the trimming of individual subject syllabi in line with the timeavailable per subject. For this latter activity, the project would alsoprovide support for the work of teacher subject panels to develop detailedsyllabi and instructional materials in Sesotho, English, Mathematics, Science,Agriculture, Social Studies, Health and Home Economics. In addition, theproject would assist in the quarterly production of the Sesotho supplementaryreader for Standards 1-3 pupils (para. 3.11), provision of replacement radios

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for the on-going Radio Language Arts Programme, and support for thed6velopment, production and distribution of pupils workbooks in each of thecore primary subjects. to assist in the distribution of these additionalmaterials, the School Supplies Unit will be provided with 3 vehicles and itsday-to-day management will be strengthened through the provision of short-termtechnical assistance (8 staffmonths), computer eqjipment, and funds foroperating costs.

4.8 Finally, in order to determine the impact of the MOE/WFP programfor self-reliance agricultural activities on primary schooling (para. 3.12),particularly time spent on acquiring basic literacy and numeracy skills, theproject would support an independent evaluation of the program, to beundertaken by a team of consultants and MOE staff. During negotiations,assurances were obtained that the evaluation would be undertaken no later thanMarch 31, 1993, that its findings would be reviewed Jointly with IDA, and thatagreed recommendations would be implemented no later than September 1994.

4.9 At secondary level, the project would assist in the revision andstreamlining of junior secondary syllabi for all subjects and the productionof associated teacher handbooks through provision of workshop costs and traveland per diems for subject panels in nine subjects including, mathematics,science, English, history, geography, development studies, religious studies,agriculture and home economics. This project activity would complementefforts already underway with assistance from the African Development Bank,ODA, and the Irish Government to improve the teaching-learning process insecondary schools and to upgrade selected facilities such as sciencelaboratories (para. 3.18). In addition, given the questions about theeffectiveness (and efficiency implications) of teaching vocational subjects insecondary schools (para. 2.24) the project would provide funds for an in-depthevaluation of Lesotho's diversified secondary education program, which has nowbeen in place for nearly ten years. During negotiations, assurances wereobtained that the evaluation would be undertaken no later than March 31, 1993,that its findings would be reviewed Jointly with IDA, and that agreedrecommendations would be implemented no later than September 1994.

4.10 Student Assessment (US$1.9 million). The project would supportimprovements in student assessment at both the primary and secondary levels.At each level, there would be two main foci: (a) strengthening the capacity ofteachers to systematically and fairly evaluate the learning achievements ofpupils on a continuous basis; and (b) strengthening the final examinations,focusing especially on the PSLE and JC. To strengthen continuous assessmentat primary level, the project would first support a pilot test of the end-of-standard sample tests and skills checklists for Standards 1-6 alreadydeveloped in the Fourth Plan period. Dissemination of the checklists andtraining of teachers in their use would be done via District Resource Teachers(DRTs). Based on an evaluation of the pilot, the tests would be modified anddisseminated to primary teachers, through a series of workshops to becoordinated by the DRTs in all 70 sub-districts. Project funds would beprovided for the evaluation of the pilot, the modification and large-scaleproduction of the tests, and for the costs of the necessary workshops fornational implementation. The technical assistance to be provided under themonitoring and evaluation component of the project (see para. 4.30) wouldassist in the implementation of the activity. At secondary level, projectassistance in continuous assessment would be provided for the modification of

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the quarterly tests in maths, science and English (para. 3.19) and fortraining of secondary teachers in their use (see para. 4.12).

4.11 With regard to the PSLE and JC examinations, the project's mainaims are to further Government's objective of establishing a singleinstitutional focal point for examinations to enable efficient use ofpersonnel, equipment and other resources, help ensure that the exams reflectthe curricula adequately, and increase the general quality of the exams. Tothese ends, the project would assist in effecting the phased transfer of thePSLE examination to ECOL (which is already responsible for the JC and COSCexams), through providing training for 48 markers and costs of examinationmarking, support for clerical staff, materials and postage funds to assist indistribution of the exams, and computer and printing equipment. Project fundswould also be used to refurbish ECOL's premises for use by PSLE staff and forthe provision of basic office furniture and equipment. At the same time, tohelp improve ECOL's capacity for setting and marking examinations andproviding timely exams analysis and feedback to schools for both the JC andeventually the PSLE, provision would be made for two long-term foreignconsultants (36 staff-months each) -- an examinations specialist and ameasurement specialist -- to provide on-the-job training to local staff intheir respective specialties. In addition, the project would cover the costsof recruitment of four local staff, including a computer analyst/programmer,data capture officer, a measurement assistant and a research assistant.Finally, funds would be provided for foreign fellowships for four ECOL staffto develop skills in disciplines related to examinations development andmeasurement and for the costs of local training in computer use.

4.12 Professional Sup$ ort for Teachers. (US$2.3 million). Linked tothe proposed improvements in curriculum, instructional materials and studentassessment, the project would help put in place a systematic in-servicetraining program for teachers, aimed at disseminating curriculum changes andstrengthening teacher capacity to effectively use instructional materials,assessment aids and other items such as the teachers' handbooks. In addition,in-service training would be used as a vehicle for increasing teacherunderstanding of means of attacking the problem of repetition and techniquesfor teaching and dealing with large classes in the lower standards. Such in-service training would also help improve teacher morale by increasing theirprofessional self-confidence and reducing isolation from colleagues. Atprimary level, it is anticipated that the proposed in-service training wouldbe implemented through expansion and strengthening of two existing teachernetworks, a school based district resource teacher network and a curriculumdissemination network, each extending to sub-district level, and expected tocomprise 70 members each by the end of the first year of the Plan. Theproposed project would help make this in-service training program feasible byproviding for costs of in-service workshops at national, district and sub-district levels, travel and per diem for participants, costs of space rentaland development and reproduction of training materials. In addition, projectfunds would be provided for the initial training of, and allowances for, thedistrict resource teachers and the selected curriculum disseminators. Atsecondary level, the project aims to complement the school-based professionalsupport to maths, science and English teachers being provided through an ODA-assisted project (para. 3.18), by providing funds for training workshops forteachers in secondary schools not reached under the school-based approach.The training, which would cover pedagogical methods as well as guidance in

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adoption of curricular and assessment innovations, would be coordinated by theheadquarters inspectorate under the proposed new MOE structure (Annex 4).

4.13 Efficiencl Improvements (US$0.3 million). As indicated in para.3.15 and in the Government's policy matrix (Annex 2), policies will beintroduced during the project period to reduce repetition and limit under- andover-age enrollment in primary schools as a means of reinforcing other actionsbeing taken to improve quality and, hence, the internal efficiency of primaryeducation. Similarly, at secondary level, Government intends to enforce morestrictly its regulations governing opening and operation of schools (toachieve a minimum, efficient size) and to allocate public resources forteaching posts in accordance with a minimum studentateacher ratio of 25sl. Insupport of these policy changes, the project would finance a public-awarenesscampaign aimed at ensuring communities and schools are aware of the comingchanges, understand some of the reasons behind them and of alternative meansof acquiring basic literacy and numeracy skills (e.g., through distanceprograms), and can prepare for them by sending children to school at theprescribed age. The campaign would involve community meetings, mass media(such as radio), as well as innovative use of travelling theater groups andthe like. Given the importance of the implementation of 'hese policy changesto the long-run financial viability of basic education in Lesotho,disbursement of funds for the construction of the second phase of classroomconstruction is conditional on: (i) implementation of the policy regardingexclusion from primary school of children under six years; and (ii) publicannouncement of the policy changes related to primary enrollment by over-agedpupils, limitations on repetition to two per primary cycle; and (iii)allocation of government-financed secondary teaching posts strictly based on aminimum student:teacher ratio of 25:1 and revision/enforcement of regulationsgoverning establishment of new secondary schools. Disbursement of funds forthe third phase of classroom construction is conditional on the implementationof the policy measures announced in (ii) above, and the continued satisfactoryimplementation of the measures included in (i) and (iii) above.

4.14 Recruitmeant of Teachers (US$8.7 million). As discussed earlier(para. 2.7), one of the most serious problems affecting primary education inLesotho is the high pupil:teacher ratio. In response, the project wouldinclude funds for the recruitment of 1,300 additional primary teachers (260per annum for each year of the Plan period), the minimum required to preventfurther deterioration of pupilsteacher ratios as the school-age populationgrows over the medium-term. Of the total teachers recruited, about 910 or 70percent would be allocated to the lower primary standards (1-3), where theteacher shortage is currently most acute. During negotiations assurances wereobtained that the Government would recruit the specified number of teachersand allocate them between upper and lower primary as planned.

Teacher TrainiAn Raising Standards and Output (US$9.2 million)

4.15 Linked to the support for basic education, the project wouldsupport a number of initiatives designed to upgrade the quality of training atLesotho's National Teacher Training College (NTTC) to ensure that futureteachers are provided with a firm grounding in both pedagogical methods andtechnical knowledge in the subjects to be taught. In addition, in view of theneed to recruit substantial numbers of new teachers during the plan period

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(para. 4.14) the project would help expand NTTC's training capacity from itscurrent enrollment of about 650 to about 1100 by the end of the plan period.

4.16 NTTC Institution Strengtheningt and Expandiug Output (US$6.2miilion). In line with Government's objective of granting autonomous 'tatusto NTTC by the first year of the Fifth Plan period, the project would p.ovidelong- and short-term technical assistance (36 staff months in total) md theservices of a local financial controller to assist the newly-independentcollege in establishing procedures and systems for administration, academicplanning and program development. Funds would also be provided forconstruction, furnishing and equipping of necessary additional office space.In addition, the project would assist in the strengthening of resourceservices through provision of audio-visual and other pedagogical equipment andmaterials, and strengthening of the library through establishment of animproved catrloging system, provision of shelving, other essential equipmentand book conservation materials as well as funds for purchase of books andjournals. The services of a full-time librarian would also be covered throughthe project. To enable expansion of NTTC enrollments, the project wou'dprovide additional physical facilities on the NTTC campus, including expandinghostel accommodations, kitchen and dining facilities and classroom and facultyoffice space. A multipurpose hail for large group activities would also beincluded in the planned construction program.

4.17 Strengthening Primary Teacher Pre- and in-Service TrainingPrograms (US$3.1 million). Project support for the upgrading of the qualityof pre-service teacher training would concentrate on staff development supportthrough provision of overseas fellowships to lecturers currently employed atNTTC. Over the project's life, this fellowships activity would includeprovision of 5 overseas fellowships in education teaching at undergraduatelevel and 5 fellowships for post-graduate studies at Masters' level. The in-service distance teacher training program (LIET) -- under which unqualifiedprimary teachers are given basic teaching qualifications -- would also bestrengthened under the project through provision of: (a) the services of along term in-service training advisor (60 staffmonths) and of a trainingmaterials development specialist (24 staffmonths); (b) funds for an evaluationof the effectiveness of the existing program; (c) support for fieldsupervision -- including salary, travel and per diem costs for fieldsupervisors and teaching staff and 3 vehicles; (d) staff conferences; (e)computing and teaching equipment, paper supplies and materials; and (f) fundsfor the operation of the residential modules of the program.

Strengthening Technical and Vocational Education (US$2.9 million)

4.18 In the TVE area, the project's overall aims are threefold: (a) tohelp improve the quality of formal, post-secondary pre-service training andincrease its cost effectiveness; (b) enhance the partnership between the MOEand industry in the provision of technical and vocational training; and (c)assist in the formulation of policies for the further development of TVE inthe future. The sub-components described below are intended to advance theseaims.

4.19 Enhancing Quality and Cost-Effectiveness (US$1.4 million).In order to help improve quality and relevance of formal pre-service technicaltraining, the project would assist Government to develop and implement

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standardized modular curricula in four crafts level courses at three TVEinstitutions -- LP, and 2 church-owned schools, the Technical School of Leribe

and the Leloaleng Trade School in Quthing. To this end, the proje-t wouldprovide technical assistance (31 staffmonths) and support in the form ofworkshop funds and supplies/materiala to the joint industry and MOE subjectpanels already involved in curriculum design to complete the second and thirdyear curriculum modules for bricklaying, carpentry, auto mechanics andelectrical installation courses. It would also support training for staff atthe three TVE institutions in developing their own technical skills and inteaching the new modular classes. This would be achieved through acombination of regional fellowships (10 in all), funds for upgrading coursesto be organized by the MOE DTVT and funds for study tours to neighboringcountries. In addition, the project would support upgrading of the facilitiesand equipment at each of the three institutions to ensure a uniform minimumstandard consistent with the requirements of the new curricula.

4.20 To help increase the cost-effectiveness of past and plannedinvestments in formal TVE facilities, the project would provide support forthe introduction of evening classes at existing TVE institutions and secondaryschools equipped with workshop facilities. Project funds would be providedfor the design of the evening classes, costs of payments to instructors, andthe initial costs for the design and production of training materials whichwould subsequently be sold to students enrolling in the classes. Funds wouldalso be provided for an evaluation of the courses to ensure that they are ofadequate quality and financially sustainable in the long-term. Duringnegotiations, assurances were obtained that evening courses would beintroduced in a minimum of 12 institutions with technical education facilitiesby March 31, 1993.

4.21 Skills Certification/Trade-Testing (US$1.1 million). To helpalleviate problems in trade-testing identified in para. 3.23 and promote amore cost-effective alternative to formal pre-service training for thedevelopment of skilled manpower, the proposed project would supportGovernment's strategy of establishing a single, purpose-built skillscertification/trade-testing center. Specifically, the project would helpdevelop a viable financial framework for the operation of the center, throughfinancing of a financial feasibility study as well as provide a new buildingequipped with classrooms, testing workshops and administrative office space.In addition, a limited amount of in'lustrial equipment would be provided forthe testing workshops. Funds would also be provided for the development ofnew tests in a number of fields, linked in part to testing the skills ofBasotho workers returning from the RSA mines. Staffing for the center wouldbe provided by the Government and technical assistance would be provided bythe recently-approved IDA-assisted Lesothot Industry and Agro-industrialRestructuring Project, with additional technical assistance (24 staffmonths)to be provided under the present project. Regional fellowships and localtraining courses would also be provided for local staff under the proposedproject. Completion of the feasibility study on the financial aspects ofoperating the skills certification/trade-testing center is a condition ofdiabursement of funds for the construction of the center.

4.22 Policy Development (US$0.3 million). To assist Government inexploring options for the further development of the TVE subsector, theproject would provide funds for the conduct of about five studies as follows:

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(a) a rsview of the TVE act as it relates to in-service training and the roleof industry in manpower training; (b) a study of the options for increasingthe role of ,mployers in the provis.on of technical training, focusing on thefeasibility of introducing a training levy and/or an apprenticeship scheme;(c) a small-scale tracer study to track career progress of post-secondary TVEgraduates; (d) a study of teacher and student attrition in TVE institutions;and (e) a feasibility study to explore the need for a catering course at LP.All of the studies would be carried out by the DTVT, with assistance fromlocal and foreign consultants. In addition to the support for the studies theproject would include funds for seminars to disseminate and discuss thefindings of the studies with MOE staff, industry representatives and otherconcerned Government agencies.

National University of Lesothot Increasing Quality and Curtailing Costs(US$2.7 million)

4.23 The project's support for NUL would be aimed at strengthening theacademic program at the university while simultaneously encouraging moreefficient use of resources in both teaching and, especially, non-teachingareas. This support would be provided within the framework of Governmentactions to improve NUL government through issuance of a revised UniversityOrder and Statutes and establishment of a university development office,responsible to the Vice-Chancellor (para. 3.27).

4.24 Quality Enhancement and Cost Containment (US$2.7 million). Onefocus of the project's support for quality improvements at NUL would be toassist NUL's ongoing effort to modify its existing academic courses to allowfor greater coherence in students' programs of study. The main input providedunder the project for this activity would be technical assistance from anexperienced university educator/ administrator for a period of about 6staffmonths. To help improve the capacity for teaching of practical skills inthe sciences, and taking into account the existing serious shortages oflaboratory space, the project would support expansion of the current sciencelaboratory facilities and provide necessary furniture and equipment. Inaddition, funds would be provided for staff development (overseas training andfellowships for about 5 staff per year) and for grants to faculty to undertakeindependent research in-country. Library facilities would also be upgradedthrough provision of additional books and journals and computerization of thelibrary system to improve book retrieval and tracking. The educationalresource center of the university would be strengthened through the provisionof teaching equipment.

4.25 With regard to curtailing overhead expenditures at NUL, theproposed project would provide 12 staffmonths of technical assistance toassist NUL in implementing cost-containment measures already identified (para.3.26) and to identify further areas fot reduction in university non-academicexpenditures (including estimates of cost savings and essential investmentexpenditures required to achieve them). In addition, funds would be providedto better insulate living and teaching areas to reduce long-term energyexpenditures, to increase fire protection to a minimum acceptable standard andto develop a comprehensive physical master plan to allow for betterutilization of existing buildings to accommodate identified space needs.Completion of the study of university overheads, satisfactory implementationof pre-identified cost-saving measures (para. 3.26) and introduction of

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modifications to the student academic program are conditions of disbursementfor laboratory construction at the university.

Strengthening Sectoral Management (US$13.2 million)

4.26 In line with Government's objectives for the plan period (paras.3.30-3.33) and within the framework of the new Education Order to bepromulgated prior to credit effectiveness, project support for sectoralmanagement would involves (a) assisting with central MOE reorganization; (b)assisting with the decentralization of selected administrative andinspectorate functions to district level; (c) helping to improve school levelmanagement; and (d) improving monitoring and evaluation of the educationalprogram and plan implementation effort.

4.27 Central MOE Reorganization (US$6.6 million). With regard to thecentral MOE reorganization, project support would be provided for technicalassistance costs associated with the establishment of a twinning arrangementbetween MOE and a similar institution abroad. The proposed twinningarrangement would involve about 160 staff-months of long- and short-termtechnical assistance as follows: (a) short-term assistance to support generaladministrative and management improvements including development of acomprehensive handbook of job responsibilities and standard operatingprocedures in English and Sesotho for dissemination to all MOE staff and on-the-job training for MOE staff in the new procedures; (b) long-term support todevelo,V the field inspectorates, including the district MOE offices andsupport for school-level management (paras. 4.28-4.29), and to assist in thestrengthening and decentralization of the new teaching services department;and (c) short-term assistance in a range of specialized areas includingdevelopment of the further and higher education inspectorate and strengtheningof NCDC, IMRC and the support services section. Funds would also be includedunder the twinning arrangement to facilitate staff exchanges, to enable MOEstaff to visit the twin institution with a view to working in closecooperation with a suitable counterpart there. Apart from the twinningarrangement, the project would also finance long-term technical assistance tostrengthen the MOE financial control and accounts section and provide officeequipment and materials for improving MOE operations. The consultant financialadvisor would also assist in the maintenance of project accounts and inhelping Government to comply with project auditing requirements. Theincremental salary costs associated with agreed new positions and the proposedrationalization of grade structures would also be included under the project.

4.28 Decentralization (US$3.5 million). To facilitate establishment ofthe proposed regional and district MOE offices, the project would fund theestablishment of 10 district resource centers (one per district), includingconstruction of office space and provision of furniture, office equipment andteaching-learning materials for use by district MOE staff. These teaching-learning materials would be available for reference to the inspectoratepersonnel as well as to resource teachers, curriculum disseminators, LDTCfield staff and headteachers for use in the conduct of teacher workshops andprovision of other forms of pedagogical guidance to teachers and schools. Inaddition, funds would be provided for the purchase of vehicles and theiroperation and maintenance costs. Staff salaries for additional district staff(professional and support levels) would also be included under the project.

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4.29 Local Level School Management (US$1.2 million). The project'ssupport for local level school management would be directed mainly toheadteacher training, given MOE's planned policy initiative (para. 3.33) oftransferring day-to-day school management to headteachers, in place of thecurrent arrangement of part-time proprietor-appointed managers. It would alsohelp prepare headteachers to provide adequate support to teRchers in a rangeof administrative and professional areas. During the five years of theproject it is expected that about 80 percent of all headteachers would betrained in issues of MOE policy and administrative arrangements as they affectprimary schools, people management and evaluation skills, basic financialaccounting to enable accurate maintenance of school records, and issuesrelating to mobilizing community support for school projects, including theconstitution and functioning of school boards. The proposed training, whichwould be undertaken during school breaks, would be coordinated by the MOEinspectorate with assistance from the technical assistance proposed under thetwinning arrangement discussed in para. 4.27 above. In addition, the projectwould finance a special program aimed at helping local communities to organize

functioning school boards and parent-teacher associations in at least 5districts during the project period.

4.30 Monitoring and Evaluation (US$1.9 million). In line with theGovernment's objectives for the plan period (paras. 3.28-3.29), the projectwould support efforts to monitor both plan implementatior. and monitor/evaluatestudent achievement at the primary level through establishment of an EducationManagement Information System (EMIS). The EMIS, to be operated jointly by theMOE Planning Unit and the evaluation sectioni of NCDC, will be aimed at linkingnational policy priorities to data collection, interpretation and presentationof documented policy options for decision-making. In support of theestablishment of the EMIS, the project would provide long-term technicalassistance (90 staffmonths) including a management information specialist andan evaluation specialist to assist in the detailed design of the system andits implementation, including clarifying functions of MOE units incontributing to the system, training of central MOE and district staff andteachers in the gathering and analysis of qualitative information on studentachievement, computerization and analysis of data, and setting of policyresearch agendas. Funds would also be provided for actual conduct of stafftraining, computer equipment and supplies, travel and per diems, and conductof special research and evaluation studies. With regard to plan monitoring,the project, through provision of a long-term education planning advisor (60staffmonths) to be based in the MOE Planning Unit, would assist ins (a) thedevelopment of strategic annual work plans with specific objectives andtargets and systematization of mid-year and annual reviews; (b) theestablishment of task-based budgeting; and (c) help MOE units to identifyareas in which coordination with other HOE units may be necessary to plan andimplement work. Given the close linkage between the present project andGovernment's Fifth Plan objectives, the advisor would also assist in themonitoring and coordination of project activities. A detailed description ofthe planned monitoring and evaluation activities is given in Annex 11.

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V. PROJECT COSTS, PINANCING AND DIMPLWENTATION

A. Project Costs

5.1 The total cost of the project is estimated at M 236.5million or US$74.6 million equivalent, including local taxes and duties onlocally-procured goods and services (approximately US$3.4 million). itemsimported directly for the project would be exempt from import duties andtaxes. The foreign exchange component of the project is estimated atUS$37.7 million or 51 percent of total project costs. Detailed costs arepresented in Annex 5 and are summarized ir Tables V.1 and V.2 below.

TABLE V.1: Prolect Cost Summary by Pro1ect Component(US$ Million)i/

Tota Ix Base

Locol Foreign Total F.E. Coats

A. BASIC EDUCATION1. Facilities 7.5 14.2 21.7 a6 842. Currie A Instruc Matortals 0.8 0.2 1.1 21 23. Assessment 0.7 1.8 1.9 66 84. Professional Support 1.9 0.4 2.8 18 45. Efficiency 0.1 0.2 0.8 65 06. Teacher Recruitment 8.7 0 8.7 0 18

Sub-total 1i7 16.1 811 41 u

B. TEACHER TRAINING1. NTTC Strengthening/Output 2.8 8.9 6.2 e8 102. Pre-/In-service Training 2.2 0.9 8.1 29 5

Sub-total 4.4 4T7 9.2 62 14

C. TECN A VOC EDUCATION1. Quality A Cost Effectiveness 0.6 0.9 1.4 61 22. Skills Cert/Indust Trng 0.6 0.6 1.1 64 23. Policy Development 0.1 0.1 0.8 49 0

Sub-total 1.2 2.9 V7 i

D. NATIONAL UNIV. OF LESOTHO1. Qwality A Cost Containmnt 0.5 2.2 2.7 82 4

E. SECTORAL MANAGEMENT1. Reorganization of MOE 8.9 2.7 6.6 41 102. DecentralizatIon of MOE 1.2 2.8 8.6 66 58. Local Level School Mgmt 0.9 0.3 1.2 24 24. Monitoring A Evaluation 0.4 1.6 1.9 78 8

Sub-total 6. 8:§ 18-.2 1 20

F. PROJECT PREPARATION FACILITY 0.4 0.5 0.9 58 1

Total BASELINE COSTS 82.7 82.2 64.9 SO 100Physical Contingencies 1.4 .7 1477 I1§Price Contingencies 2.8 2.7 6.6 49 9

Total PROJECT COSTS 86.9 87.7 74.6 51 115

3/ Numbers may not add up exactly due to rounding.

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Table V.2: Cost Sunnary by Sumry Account(US$ Hillion)lI

UTotal

Local Foreta.i Total F.E. Cots

I. INVESTMENT COSTSA. CIVIL WRKS - PRIMY 6.2 9.8 1656 60 24B. OTHER CIVIL WORKS 2.6 6.2 6.0 65 12C. EqJIPMENT 0 1.2 1.2 100 20. FUrNIRE 0.6 5.0 5.6 90 9E. MATERIALS/SUPPLIES/BKS 0.8 1.8 2 8 60 2F. TECHNICAL ASSISTANCE

1. Local Consultants 2.0 0 2.0 0 a2. Expat. Consultants 1.2 4.9 6.2 80 10

Subtotal 1T7 T77 7:1O iira

0. VEHICLES 0 0.8 0.8 100 0H. STUDIES & RESEARCH 0.2 0.8 0.5 67 1I. TRAININC A FELLOWSHIPS

1. In-Country Training 0.2 0.1 0.8 19 02. External Training 0 1.8 1.8 100 a

Subtotal 0.! I fT -W '

J. MEETINGS/WORKSHOPS 8.0 0.7 B.7 16 6K. PER DIEMS ONLY 1.0 0.2 1.2 18 2L. PROJECT PREP. FACILITY 0.4 0.6 0.9 68 1

TOTAL INVESTMEIT COSTS 18.0 80.8 48.8 68 76

II RECURRENT COSTSA. LOCAL SAiRIES 18.9 0 18.9 0 21B. OPERATION & MAINTENANCE

1. Building 6&M 0.6 0.7 1.2 60 22. Furniture/Equipment OAM 0.1 0.8 0.4 80 18. Vehicl- 1AM 0.1 0.2 0.8 70 0

Subtotal 57? 51 I

C. SUPPLIES/MATERIALS 0.0 0.1 0.1 90 0O. SERVICES/RENTS 0.1 0 0.1 0 0

Total RECURRENT COSTS 14.7 1.8 16.0 a 25

Total BASELINE COSTS 82.7 82.2 64.9 sO 100PFhyIla a ContI ne ncies 1 1.47 2T. 47 19Price Contingencies 2.8 2.7 6.6 49 9

Total PROJECT COSTS 86.9 87.7 74.6 61 115

V/ Numbers my not add up exactly du, to rounding.

5.2 Basis of Cost Bstimates. The project's base costs are inMarch 1991 prices. They were calculated in Maloti and then converted toUS$ at the prevailing exchange rate of M 2.6/US$l. Purchasing power parityexchange rates were used for the project's implementation period. Civilworks costs are based on priced bills of quantities listed in recentcontracts for comparable facilities financed under Credit 1512-LSO and fromMinistry of Works contracts. The baseline school construction costsaverage M 500 (US$184) per square meter for new primary schoolconstruction. Community contributions (mainly the supply of aggregates anderection of non-structural walls/partitions) to primarf school constructionconstitute about 15 percent of the cost of a complete, private contractor-built classroom. Classroom repairs are estimated, on the average, at halfthe cost of new facilities. A local cost adjustment factor has been

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applied to construction cost 's';imatas _or each district, taking intoaccount variations in building cists routlng from the unavailability ofmost (about 90 percent) building material vxcept aggregates) and skilledlabor in remote areas. The local cost adjustment is based on recentcontracts awarded after tenders for similar buildings in each region.Construction costs for the other building types (NTTC, DRCs and NUL) areestimated at M1,200-1,500 (US$401-551) per square meter. Site developmentcosts are estimated at 15 percent of building costs. The supervision costsof primary school construction are estimated at about 6 percent ofconstruction costs. Fees for architectural and engineering services forbuildings other than primary schools are estimated at 10 percent of civilworks costs (building and site development). Classroom furniture costs arebased on current, priced furniture lists compiled by the MOE. Otherfurniture (for new facilities at NTTC and NUL and DRCs) is estimated atabout 10 percent of construction cost. Equipment cost estimates were basedon existing equipment lists and specifications for about SO percent of theitems to be procured. For the remainder of the components, equipment costswere based on appraisal mission estimates. Technical assistance andfellowships costs have been estimated on the basis of recent prices forcomparable activities under Credit 1512-LSO. The staffmonth costs ofspecialists include housing, relocation costs, salaries, subsistence,office services, fees, overheads and recruitment costs. Costs for perdiems, workshops and travel are based on standard Government allowances andmission estimates.

5.3 Contingency Allowances. Project costs include contingencyallowances for unforeseen physical additions (US$4.1 million or 6 percentof base cost), equal to: (a) 10 percent of the estimated costs of civilworks, furniture, equipment, vehicles, supplies and materials, professionalarchitectural/engineering fees; (b) 5 percent of the costs of technicalassistance, training, studies, and fellowships. No physical contingencieshave been provided for local staff salaries. Price contingencies betweennegotiations (May 1991) and the end of project implementation are estimatedat US$5.6 million equivalent, or 9 percent of base cost plus physicalcontingencies. Total contingencies represent 15 percent of the base cost.Annual rates of price increases have been applied to both local and foreigncosts at the rates shown in Table V.3 below.

Table V.3: Price Contingencies by Government Fiscal Year

1991/92 1992/93 1993/94 1994/95 1995/96

Local 13.3 12.6 12.8 13.5 13.5Foreign 3.4 3.4 3.4 3.4 3.4

5.4 Foreign Exchange Component. The foreign exchange componentwas estimated as follows: (a) construction and refurbishment of primaryschool facilities, building operation and maintenance - 60 percent; (b)construction and refurbishment of other facilities - 65 percent; (c)furniture, materials and supplies - 90 percent; (d) equipment, vehicles,overseas study trips and fellowships - 100 percent; (e) studies, foreigntechnical assistance, vehicle operation and raintenance - 80 percent; (f)

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local trips, rent, local staff salaries, per tiem - 0 percent. Thesepercentages have been determined by: (a) estimating the direct and indirectforeign exchange component of civil works; and, (b) assuming that allequipment and about 90 percent of furniture would be imported. Includingcontingencies, the resulting foreign exchange component is estimated at US$37.7 million, or about 51 percent of total costs.

5.5 Recurrent Costs. Under the proposed project additionalrecurrent costs for MOE would be generated by the provision of localsalaries, operation and maintenance costs for buildings, equipment andvehicles, as well as supplies/materials and services/rents. The totaladditional recurrent (base) costs generated by these items would be aboutUS$17.9 million, of which US$2.3 million is for building, equipment andvehicle maintenance and US$15.3 million for additional salaries. Theannual recurrent costs generated directly by the project would be M 21.1million or US$5.6 million, a level that is affordable, given Government'splan to increase real recurrent resources to the education sector andincrease the share of the sector in the total recurrent budget (paras. 3.5-3.6 and Annex 3). The estimated end-project annual incremental recurrentcosts would amount to about 92 of the projected education recurrent budgetfor 1995/96.

B. Project Financing

5.6 Of the total project costs of US$74.6 million, theGovernment of Lesotho would finance US$20.3 million (including US$3.4million in taxes and US$1.5 million to be provided by local communities inthe form of building materials and labor), US$25.2 million would beprovided by the proposed IDA credit, and US$29.1 million by parallel-financiers on grant terms. USAID would provide US$24.9 million and ECwould provide US$4.2 million equivalent. Executioa of the USAID GrantAgreement between the Government and USAID is a condition of crediteffectiveness.

5.8 Therefore, IDA and the parallel financing agencies waouldfinance US$54.3 million or 73 percent of total project costs, covering thetotal foreign exchange requirement and 55 percent of local costs. Theremaining 45 percent of local costs would be borne by Government and by thelocal comuunities. Project financing arrangements are given in Table V.4.

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Table V.4: Financing Plan(US$ Million equivalent) 3/

LOCALIDA USAID EC aOVT CO. LOTAL

I. INVESTMENT COSTSA. CIVIL WORKS - PRIMARY 11.7 0 4.0 2.8 0.7 18.7B. OTHER CIVIL WORKS 1.8 0.8 0 1.1 0 9.2C. EqUIPMENT 0.7 0.7 0 0 0 1.4D. FURNITURE 0.1 6.6 0 0 0 6.6E. MATERIALS/SUPPLIES/GKS 0.8 1.1 0 0 0 1.9F. TECHNICAL ASSISTANCE 6.2 8.9 0.2 0 0 9.80. VEHICLES 0.1 0.8 0 0 0 0.4H. STUDIES A RESEARCH 0.6 0 0 0 0 0.6I. TRAINING A FELLOWSHIPS 1.6 0.9 0 0 0 2.4J. MEETINGS/WORKSHOPS 1.8 2.8 0 0 0 4.1K. PER DIEMS 0 1.8 0 0 0 1.8L. PROJECT PREP. FACILITY 0.9 0 0 0 0 0.9

1I. RECURRENT COSTSA. LOCAL SAARIES 0 1.6 0 18.7 0 15.8B. OPERATION & MAINTENANCE

1. BuildIng O*U 0 0 0 1.1 0.8 1.42. Furniture/Equipmnt OWM 0 0 0 0 0.6 0.68. Vehicle OhM 0 0 0 0.8 0 0.8

C. SUPPLIES/MATERIALS 0 0 0 0.1 0 0.1D. SERVICES/RENTS 0 0 0 0.2 0 0.2

Total PROJECT COSTS 26.2 24.9 4.2 18.8 1.5 74.6

pj Include. physical and price contingencies.

C. Management and Implementation

5.9 Prolect Management. The overall responsibility for projectmanagement would rest with the MOE, whose technical departments andaffiliated institutions would play the lead roles in implementation ofproject sub-components falling under their area(s) of responsibility.However, the responsibility for monitoring and coordination of projectimplementation would rest with the Director of the HOE Planning Unit, whichunder the reorganized ministry structure would be directly responsible tothe Principal Secretary, MOE. The Planning Unit would be the main conduitthrough which technical departments/institutionL' would liaise with centralGovernment agencies (e.g., the Ministry of Finance and Planning and theCentral Bank of Lesotho) and the World Bank. Within the Planning Unit, oneof the planning officers (supported by the consultant Planning Advisor --para. 4.30) would be designated Project Coordinator and have theresponsibility of following up on all project matters on a day-to-day basisand drawing the attention of the Director, Planning (or where appropriate,the Principal Secretary) to policy matters or other project issuesrequiring special attention. S/He will meet regularly with theimplementing agencies/departments, monitor progress, and prepare reports asrequired by the Government and the World Bank. S/He would also facilitatecoordination between the technical departments/institutions and MOE supportservice units concerned with project activities. These would include: (a)the office of the Buildings Officer which would provide support in theareas of construction contract management and supervision of consultantarchitects/engineers; (b) the office of the Procurement Officer which would

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provide assistance to technical departments in the procurement and in-country transportation of furniture, equipment, materials and vehicles, inthe contracting of local and foreign consaltants and in the administrationof fellowships; and (c) the office of the Financial Controller, withinwhich an accountant would be appointed to assist in handling all projectfinancial matters, including maintenance of project accounts andpreparation of withdrawal applications. A project launch workshop would beheld early in the project implementation period to define in detail theresponsibilities of the various MOE units and other institutions involved.

5.10 Present Status of Preparation. The project was prepared bythe MOE, led by the Planning Unit with the occaslonal assistance ofconsultants supported through an IDA Project Preparation Facility (PPF 599-LSO). At appraisal, a list of preparatory activlties which need to befinalized was drawn up. This list includes preparation of:

(a) prequalification, bidding and contractual documents forbuilding construction and architectural/engineeringconsultant services;

(b) bidding and contractual documents for procurement ofequipment, furniture and other materials;

(c) detailed architectural briefs for the NTTC, NUL and DRCbuildings;

(d) final equipment llsts and specifications;

se) acquisition of building sites for the 10 DRCs, site surveysand preparation of preliminary architectural plans for thesecenters; and

(f) preparation of detailed job descriptions and schemes ofservice for the MOE reorganization.

These activities, in addition to other start-up activities are beingfinanced under a second tranche of the PPF approved by IDA in connectionwith the proposed project.

5.11 The project is in a state of preparation that would permit timelyimplementation because: (a) the process of tendering and awarding ofcontracts and for civil works and equipment procurement were agreed withthe Ministries of Finance, Works and Education at appraisal; (b) standardequipment and furniture lists and bid specifications have been completed;(c) 80 percent of the technical assistance package has been fully definedand, draft terms of reference are under preparation or already prepared;and (d) satisfactory standard designs for primary schools are ready, andthe list of primary schools comprising phase 1 of the construction programare being finalized.

5.12 Proiect Implementation Schedule. Implementation is expected totake about flve years, starting in mid-September, 1991. The project wouldbe completed by September 30, 1996 and it would be closed by March 31,

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1997. An implementation schedule showing the timing of activities duringthe implementation period is given in Annex 7.

5.13 Prolect Implementation Review and Project Kwaluation. MOE wouldbe responsible for the preparation of progress reports on projectactivities on a six-monthly basis. These semi-annual reports would beprepared by the MOE Planning Unit, based on inputs from other MOEdepartments and institutions concerned with the project. The reports wouldbe submitted to the Bank by the MOE and discussed during projectsupervision missions, a proposed schedule for which is presented at Annex9. In addition to regular semi-annual reviews, it is planned that two,more comprehensive, reviews would be undertaken jointly by the Government,IDA and USAID to monitor progress in taking key actions included in theGovernment's letter of sectoral development policy and policy matrix.During negotiations, assurances were obtained from the Government that itwould conduct jointly with IDA, two project implementation reviews ir March1993 and September 1994 respectively, in order to: (a) monitor progress inachieving program/project objectives; (b) identify implementation issuesand proposed solutions; (c) promote exchange of ideas among staff involvedin program/prolect implementation; and (d) update program/projecttimetables, cost estimates and budget requirements. Finally, a projectcompletion report would be submitted to IDA within six months of theproject's completion date.

D.Procurement

5.14 Procurement. The procurement arrangements for the project areoutlined below in Table V.5 and described in detail in the followingparagraphs. In general, procurement of works, goods and services financedby USAID and EC under parallel financing arrangements, would be undertakenin accordance with procedures prescribed by these agencies.

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Table V.6S Procurement Arrennsonts aI i(USi mlillion)

---------- Procurement Meothod----Projoet Element ICB LCB Prudent Other S/ Total

Shopping Cost

I. Investment Costs

A. Clvil Works-Primary - 18.7 - 6.0 18.7- ) (11.7) - ) C-) (11.7)

B. Other Clvil Works 6.8 2.4 - - 9.2(1.4) ( 0.4) C-) (-) (1.8)

C. Equipment, Furniture, Vehicles 1.0 0.4 0.8 8.6 10.8Materials, Supplies, Books 1 1.0) ( 0.4) ( 0.8) t - ) ( 1.7)

D. Technlcl Assistance - - - 9.9 9.9and Studil C-) C-) (-) (5.8) (5.8)

E. Training and Followships - - 2.4 2.4C-_ ) C-_ ) (C- ) ( 1.6) (1.6)

F. Meeting/Workshops - - 4.1 4.1t - ) (-~ ) ( - ) ( 1.8) (1.8)

0. Per Diems - - 1.8 1.3

H. PPF - - 0.9 0.9C-_ ) (-_ ) (-_ ) ( 0.9) (0.9)

I. Recurrent Costs

A. Local Salaries - ) - 16.8 1.3

B. Operation and Maintenance - - 2.2 2.2(-_) C-_) - ) C-) (-)

C. Supplies/Materlsl - - 0.1 0.1C-_) ( _) - ) - ) (-)

D. Services/Rents - - 0.2 0.2C-_) ( -) (-) (-) (-)

TOTAL 7.8 16.5 0.8 60.0 74.6( 2.4) (12.6) ( 0.8) (10.0) (26.2)

*/ Includes US8 8.4 millon In local taxos and dutleFigures in parentheses are the respective amounts to be financed underthe IDA cr dit.USAID and EC procurement using their own procuremnt methods, procurementof consultants services, training and followships, and procurement ofworkshop costs, otc. using standard Governm nt procedures.

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5.15 Procurement of Civil Works. Contracts for the construction andrehabilitation of the physical facilities financed under the IDA creditwould be awarded in accordance with the following procedures:

(a) International Competitive Biddin8 (ICBE would be applied forall civil works contracts estimated to cost US$250,000 andabove, procured in accordance with the Bank's "Cuidelinesfor Procurement Under IBRD Loans and IDA Credits' (May,1985). Domestic civil works contractors would receive apreferential margin of 7.5 percent in bid evaluation overcompeting bids from foreign bidders, following IDAguidelines. Based on the proposed threshold value ofUS$250,000, contracts to be procured through ICB methods areexpected to include all civil works at NTTC, NUL, and theSkills Certification/Trade-Testing Center. It has beenagreed that Bank ICB guidelines would he followed for theNTTC expansion, although portions of the funds for theconstruction would be derived from the USAID grant.

(b) Competitive Bidding Advertised Locally (LCB) would beapplied for civil works estimated to cost less thanUS$250,000 equivalent. These are expected to include civilworks contracts for primary school classrooms and districtresource centers (DRCs), which would be scatteredgeographically and spread out over time and thus unlikely tobe of interest to foreign bidders. Local LCB procedureswere reviewed during project appraisal and are acceptable toIDA as they include local advertising, public bid opening,allow for clarity in the evaluation and comparison of bidsand provide for awards to the lowest bidders. Moreover, itwas ascertained that a sufficient number of localcontractors would be interested in participating in the LCBtenders to ensure adequate competition. As is usual, anyinterested foreign bidders from IDA member countries wouldnot be precluded from participating in the tenders. It isanticipated that about 25-27 contracts valued at aboutUS$130,000 per contract would be awarded annually forprimary classrooms. Contracts for the 10 DRCs would averageabout US$200,000-230,000 per contract.

(c) Prequalification of Civil Works Contractors. Before tendersare invited for each phase of the primary classroomconstruction program, all contractors would be prequalifiedto determine their experience, ability to provide staff,labor, plant and equipment for the projects up for bids, andtheir capacity to execute the works if awarded contracts.Contractors would be limited to offer bids for contracts,planned to be implemented concurrently, up to an estimatedaggregate value equivalent to the evaluated absorptivecapacity of the contractor at a particular constructionphase. This proposed pre-qualification of contractors isintended to help avert problems encountered in previousclassroom construction programs, where individualcontractors sometimes bid simultaneously for several

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projects and then had difficulty in executing the contractswhen the numbers of bids awarded to them exceeded theirimplementation capacity.

5.16 Procurement of Goods. To the extent possible, bid packagesfor the procurement of equipment, vehicles, furniture and materialsrequired under the project would be grouped into homogenous packages inquantities that would achieve economies of scale and timely and efficientdelivery (and installation). Procurement of goods would be undertaken asfollowss

(a) International Competitive Bidding procedures in accordancewith IDA Procurement Guidelines would be applied for bidpackages estimated to cost more than US$100,000 equivalent.In comparison of bids for goods to be procured through ICB,domestic manufacturers would be allowed a preferentialmargin of 15 percent, or the existing customs duty,whichever is lower, over the c.i.f. prices of competingimports.

(b) Local Competitive Bidding procedures would be employed forbid packages below US$100,000 but above US$40,000, withforeign competitors represented locally eligible to bid.

(c) Prudent Shopping procedures would be applied in theprocurement of goods estimated to cost below US$40,000equivalent per package up to a total aggregate amount ofUS$300,000 equivalent. Price quotations for the requireditems would be obtained from at least three independeatsuppliers.

5.17 Other Procurement. Consultants' services would be procured inaccordance with principles and procedures acceptable to the Bank on thebasis of the 'Guidelines for the Use of Consultants by World Bank Borrowersand by the World Bank as Executing Agency.* Other items, includingincremental recurrent cost items, travel/per diems, salary costs andworkshops/training would be procured using regular Government procedures.

5.18 IDA Review of Bid Packages and Contract Awards. Biddingpackages for civil works and goods valued at over US$100,000 equivalentwould be subject to IDA's prior review of procurement docxunentation,resulting in a coverage of about 80 percent of the total estimated value ofsuch contracts. Smaller psckages would be subject to random post-awardreview by IDA. Terms of reference, curricula vitae and draft contracts forconsultants would be reviewed by IDA prior to appointment of consultants.

S. Disbureemeats

5.19 Disbursements. The proposed project would be disbursed over aperiod of about five aud a half years and disbursements would be made inaccordance with Table V.6. The disbursement schedule reflects theconditionality on disbursement. Disbursements from the proposed credit areexpected to take place on an average of about 6 months after incurring the

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expenditure. A disbursement schedule comparing projected disbursements forthis project to the standard country profile is given in Annex 8. Theproposed disbursement schedule for the project is generally in line withthe actual disbursements for past projects in Lesotho. Disbursements areexpected to be completed by March 31, 1997.

Table V.C, ALLOCATION AND DISBURSEMENT OF IDA 'REDIT(USI millIon)

IDA Percentage of ExpenditureDisbursement Catsaorv Allocatlon to be Financed

1: CivIl Works Prlimry(a) Phase I 8.6 86X of total expenditures

(b) Phase I 8.9 6OX of total expenditure.

(c) Phase UII 8.9 6SX of total expenditures

2: Civil Works University 0.4 100I of foreign expenditures and60X of local expenditures

8: Civil Works Skills Cort. Center 0.4 100X of foreign expenditures and6OX of local expenditures

4: Civil Works NTTC/District Centers 0.7 10X of total expenditure

6: Furnlture, Vehicles, Equipment 1.4 100X of total expenditurematerials, Supplies

6: Technical Assistonce, Training, 6.7 100E of total expendituresFe lowshipe, W.rkshops,Meetings, Studies

7: Project Preparation Facility 0.9 100X of total expenditures

8: Unallocated 1.8

TOTAL 26.2

5.20 All disbursements from the IDA credit account would be fullydocumented except expenditures for (a) contracts, purchase orders forgoods and services or overseas training programs valued at less thatUS$20,000 equivalent, (b) local training programs, and, (c) forceaccount and operating costs for which disbursements would be madeagainst certified statements of expenditure (SOE). Documentation wouldbe retained by hOE for review by Bank supervision missions and projectauditors.

5.21 Special Account. To facilitate timely project implementation,the Government would establish, maintain and operate, under terms andconditions satisfactory to IDA, a Special Account in a commercial bankacceptable to IDA. IDA would make an initial deposit, equivalent toabout US$ 1.4 million. This amount is expected to cover about fourmonths of eligible payments. The Special Account would be replenishedas appropriate when the undisbursed balance of the account falls belowan amount equal to 50 percent or less of the amount of the SpetialAccount. Withdrawal applications would be submitted monthly regardlessof the volume of business handled by the Special Account and would besupported by full documentation except for items eligible fordisbursement on the basis of certified SOEs.

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5.22 Accounts, Audits and Reporting. The Government would maintainseparate accounts for the project. Project accounts, including theSpecial Account, would be audited annually in accordance with the March1982 Bank *Guidelines for Financial Reporting and Auditing of ProjectsFinanced by the World Bank". Audit of SOEs would be included in theannual audits, the reports for which would be furnished to IDA withinsix months of the end of each Government fiscal year. The Governmentprovided assurances to this effect during credit negotiations.Although, over the past 2-3 years, Government has submitted auditieports to IDA in a timely manner for the Fourth Education Project(Credit 1512-LSO), some problems have been apparent, mainly with regardto the accounting and audit of SOEs. To help address these problems,the project-financed financial advisor would, as part of his/her duties,oversee project financial management (para. 4.27) and an accountingofficer wi-thin MOE would be specificLlly designated to maintain projectaccounts. In addition, the project would include funds to contract aspecialized private firm to carry out the annual audits under thesupervision of the Auditor General. Terms of reference for these auditswould be finalized at credit negotiations.

VI. BENEFITS AND RISKS

6.1 Benefits. By supporting the Government's program foreducational reform, the proposed project will enhance the cost-effectiveness of Lesotho's education system, enhancing the quality ofeducation at all levels of the system (especially primary education) andincreasing the efficiency of resource _.se. By thus contributing toincreasing the education and skill levels of Lesotho's present andfuture labor force, the project will, in the medium- to longer-term,help to increase the productivity of Lesotho's domestic economy andmaintain or improve the competitiveness of Basotho labor in the regionallabor market (and consequently the possibility of continued highremittances, on which Lesotho remains dependent). This, in turn, willhave significant impact on household incomes, thus helping to furtherGovernment's poverty alleviation efforts. The project's support forrevision in education policy, management, staffing and resourceallocation patterns will also significantly strengthen sectoral capacityfor program implementation, thereby establishing a sound base for futureinvestments in the sector. Finally, by assisting Government toarticulate a comprehensive sectoral development plan, the project wouldhelp achieve much-needed cooperation among the many donors active inLesotho's education sector.

6.2 Risks. The principal risk of the proposed project is that,with the coming of elections in 1992, political candidates may promisefurther sectoral expansion, despite the need for and presentGovernmental commitment to, consolidation and improving the internalefficiency of the education system during the Fifth Plan period. Theproject's support for a well-targeted publicity canmpaign would help toreduce this risk, by increasing popular appreciation of efficiencyissues in education. A second risk is that Government, given its fiscalausterity program, may not increase education's investment and,

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especially, recurrent budgetary allocations enough to allow timelyimplementation of the five-year reform package. This risk is reduced bythe strong support articulated in the DMP ESAP package and theassociated Government Policy Framework Paper for continued real growthin education spending and by the Government's continued emphasis on theeducation sector in public policy pronouncements and documents.

VII. AGREEMENTS TO BE REACHED AND RECOMHMNDATION

7.1 Prior to negotiations, the Government: (a) submitted toIDA a draft letter of education sector development policy and attachedpolicy matrix (para. 3.2); (b) approved the MOE five-year sectoraldevelopment plan (para. 3.2); (c) approved the proposed new MOEstructure (para. 3.31); and (d) approved a satisfactory teaching servicesalary scale and career structure (para. 3.35).

7.2 The final version of the letter of education sectordevelopment policy and matrix signed by the Minister of Finance onbehalf of the Government (para. 3.2) was received by IDA prior to BoardPresentation and is presented in Annex 2.

7.3 The following are conditions of credit effectiveness:

(a) enactment of the revised NUL Order and Statutes (para.3.27);

(b) enactment of the revised Education Order (para. 3.33)and;

(c) execution of the USAID Grant Agreement between theGovernment and USAID (para. 5.6).

7.4 During negotiations assurances were obtained that:

(a) recurrent resource allocations to education would beincreased by 54.4 percent in real terms between 1990/91and 1991/92 and by at least 4.0 percent in real termsduring each subsequent year of the Fifth Plan period(para. 3.7);

(b) an independent evaluation of the self-relianceactivities in primary schools would be undertaken nolater than March 31, 1993, that its findings would bereviewed jointly with IDA, and that agreedrecommendations would be implemented no later thanSeptember 30, 1994 (para. 4.8);

(c) an 4ndependent evaluation of the diversified secondaryeducation program would be undertaken no later thanMarch 31, 1993, that its findings would be reviewedjointly v-! IDA, and that agreed recommendation would

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be implemented no later than September 30, 1994 (para.4.9);

(d) Government would recruit 1300 new primary teachers (260per year during the Fifth Plan period) and allocate atleast 70 percent of the new teachers to the lowerprimary grades (para. 4.14);

(e) evening classes would be introduced in a minimum oftwelve institutions with technical education facilitiesby March 31, 1993 (para. 4.20); and

(f) Government would conduct, jointly with IDA, two projectimplementation reviews in March 1993 and September 1994respectively (para. 5.13).

7.5 The following are conditions of disbursement:

(a) Disbursement of funds for the construction of the decondphase of classroom construction would be conditional on:(i) implementation of the policy regarding exclusionfrom primary school of children under six years of age;(ii) public announcement of the policy changes relatedto primary enrollment by over-aged pupils, limitationsor. repetition to two per primary cycle; and (iii)allocation of government-financed secondary teachingposts strictly based on a minimum studentsteacher ratioof 25:1 and revision/enforcement of regulationsgoverning establishment of new secondary schools.Disbursement of funis for the third phase of classroomconstruction would be conditional on the Implementationof the policy measures announced in (ii) above, and thecontinued satisfactory implementation of the measuresincluded in (i) and (iii) above (para. 4.13);

(b) Completion of a feasibility study on the financialaspects of operating the skills certification centerwould be a condition of disbursement of funds for theconstruction of the center (para. 4.21); and

(c) Completion of a study of university overheads,satisfactory implementation of agreed cost-containmentmeasures at NUL and introduction of modifications to thestudent academic program would be conditions ofdisbursement for laboratory construction at theuniversity (para. 4.25).

7.6 Subject to the above assurances and conditions, theproposed project constitutes a suitable basis for an IDA Credit in theamount of SDR 18.9 million (US$25.2 million equivalent) on standardterms to the Government of the Kingdom of Lesotho.

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ANNEX 1Table 1

KINGDOM OF LESOTHOEDUCATION SECTOR DEVELOPMENT PROJECT

Lesotho Education Enrollants by Level

Level 1980 1985 1990

Primary 244,838 314,003 351,652

Junior Secondary 19,327 29,071 36,420

Senior Secondary 4,028 6,352 8,644

Total Se.undary 23,355 35,423 45,064

Teacher Training (NTTC) ---- 924 658

Technical Vocational 1,236 1,263 1,690

Tertiary (NUL) 995 1,119 1,273

Source: Ministry of Edacation Planning Unit

LESOTHOEDUCATION SECTOR DEVELOPMENT

Enrolnent in Primary Schools by Age, Grade and by Sex - Narch 1990(vith Age Specific Enrolment Ratios)

6rade/Standard: Age SpecificAge (on 31 ; 2 3 4 5 6 7 All Standards Enrolment Ratios:Dec 1909) NIle Femia hle Female Nale Female Kale Female Nale Female Hale Female Nale Female Hale Feule Total Hale Female

<6 2691 2951 - - - - - - - - - - - - 2691 2951 5642 - -6 8885 9941 668 1166 - - - - - - - - : - 9553 11107 20660 41.81 48.617 915 lo013 3N 5327 399 735 - - - - - - - - 13828 16415 3Q303 62.41 74.1t8 72 6823 6402 8243 1861 3639 254 586 - - - - -15181 19211 34992 73.2% 88.719 4260 3545 6543 10 3592 6084 1150 2228 134 299 - - 15619 1935 35036 74.n1 91.6%10 322? 2236 6096 5459 5096 7184 2343 4m 69s 1662 80 219 - - 11532 2149S 39027 85.n1 104.2%11 1470 846 3768 2617 4718 5350 3422 5869 1646 3954 488 1396 14 181 15656 20213 35869 78.8t 100.6t12 128 07 2255 1376 3955 3369 3622 5076 2268 4123 1102 2810 336 1092 14266 18913 33179 14.0% 96.9%13 417 150 134 663 3145 2246 401 4377 3164 5345 1825 4488 915 2690 1432 1999 34191 82.6% 109.1%14 229 81 678 275 1861 933 268 2298 2700 3871 2290 4317 1504 3626 11941 15651 21592 68.81 88.4% 315 121 28 394 120 1168 612 2089 1441 2104 206 2421 3953 1896 4530 10199 13490 24289 64.1% 79.1% ab16 106 10 204 34 532 231 1224 643 1766 1305 191 22ff 1924 3405 7661 7873 15534 47.8% 48.0%17 - - 136 48 227 78 542 230 816 488 1203 1001 10 1876 4474 3721 8201 29.0% 23.5%18 - - - - 205 38 264 101 459 179 705 367 1099 821 2732 1512 4244 18.3t 9.8%19 - - - - - -142 41 152 39 23 0 4 199 1009 349 1358 6.9 2.3%20 - - - - - - - - 119 16 158 23 29 69 51 5 108 683 4.110 .1

'20 - - - - - - - - - - 45 13 145 29 190 42 232 - -

Total 39124 37431 32196 32539 26829 30549 21759 27535 16683 24687 12450 20968 10158 18724 159199 192433 351632

In Age6rou 22828 22863 22166 22233 21554 21657 20993 21131 20448 20626 19872 20086 19269 19511 147130 148113 295243

Appropriate Agefor Std. 38.9143.5% 16.71 24.0% 8.6% 16.8% 5.5% 10.5% 3.4% 8.1% 2.5% 7.0t 1.O 5.6% 11.6% 11.1% 14.4%

Nbte: the 'In Age 6roup' is the population Who are of the appropriate age group for a standard. For example, the population of F6-year-old males is estimted as 22828, of which 8983 are in Standard 1 (39.41). cr|In some cases there are more students of a particular age group in school than the estimate naber of pers*ns uf that agein the population. The estimates may be too low as they are based upon the 1976 census.

Ages for each standard were truncated at the high end; e.g., the age 16 for Standard I includes all those 16 and over.

LESOTHOEDUCATION SECTOR DEVELOPMENT

Number of Primary Schools, Classrooms, Classes, Pupils, Teachersand Pupil:Teacher Ratios by District - March 1990

Number of: Number of Pupils: Number of Teachers: Schools PercentClass- Peroent P:T w/full w/Full

Disirict: Schools rooms Classes Nale Female Total OUial. UJnqutal. ToLal thiqual. Ratio Lourse Cotrt-se

Butha-But.he 65 247 460 11784 13004 24868 349 86 435 19.8% 57.2 47 72.3%teribe 150 604 1067 29220 31832 61052 919 144 1063 13.5% 57.4 120 80.0%Berea 103 517 824 22792 24437 47229 683 151 834 18.1% 56.6 87 84.5%Maseru 194 916 1366 34032 38082 72114 1116 228 1344 17.0% 53.7 147 75.8%hafeteng 135 444 829 18508 23865 42373 673 134 807 16.6% 52.5 124 91.9%Moliale's Hoek 140 318 662 14329 19380 33709 511 123 634 19.4% 53.2 98 70.0%Qulhing 111 '56 444 9815 12715 22530 313 89 402 22.1% 56.0 58 52.3%Oacha's Nek 83 .14 284 6042 7900 13942 214 33 247 13.4% 56.4 33 39.8% VIMokbotlong 94 92 323 5763 9312 15075 256 60 316 19.0% 47.7 61 64.9%Thaba-Tseks ils 134 400 6914 11846 18760 299 71 370 19.2S 50.7 53 46.1%

Total 1190 3552 6659 159199 192453 351652 5333 1119 6452 17.3% 54.5 828 69.6%

Total 1989 1181 3539 6640 156990 191828 348818 5099 1176 6275 18.7% 55.6 814 68.9%

Change 0.8% 0.4% 0.3% 1.4% 0.3% 0.8% 4.6% -4.8% 2.8% -1.4% -2.0% 1.7% 0.7%

Note: The number of classrooms does not include 840 church halls used for this purpose.

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LESOTHO ANNEX 1EDUCATION SECTOR DEVELOPMENT Table 4

tldws in Primy Sduis by Oal fi ktim, So. ad by Distict - h L0

Ulifid tr..vO)lificatitns LPMC LPIC LPL ItII 1 lM /EVI 11

ownt WIC PR nl NAtRIC X ItC III II It/tIC ii Galif id:Distrid: N F N F N F N F N F N F N F N F N F tal

Wdrtiil I - 3 54 9 97 6 6 1 2 - 11 0 84 4 19 4 213 317Lerilm 4 8 158 5 33 32 W 4 1 4 24 92 B397 8 34 8 1 3 8 2o" I 5 U 283 8 13 17 2 2 9 91 24 44 6 21 I516 60i1kIan 5 43 1 43 29 15 33 1 9 4 U7512 13 56 IIIS 91l1% iWiet"e 2 4 10 3 27197 14 21 2 1 31 16 4157 11 21 1U 520 664MIale's lMA 1 - 13 18 19 143 6 11 1 - I5 35 3 152 8 38 99 37 49

thlg - - 3 15 9 102 1 6 - 1 4 16 ID0 2 21 6 2 1 305s N'sk - - 1 4 U 53 7 18 4 - 23 25 21 34 5 7 n2 1 213

W% lgu - - 4 8 Z2 80 3 10 - 1 7 7 31 52 S5 3 72 178 29PIbt-T*o - 2 6 6 A 70 5 6 1 2 31 13 42 6 11 14 1N 169 293

TOW U14 62361231¶1 87 9 IN 13 l 32 I 32I n73 251 1019 4159 517

lotsl 9> 7 33 1351 811 123 209 17 39 216 528 112 3 I V 34 M *M9 511

oC I 100.1 81.91 3.1% 11.11 3.5 6.1 N-23.3%-19.1%-23.5%-17. -9.7% -2.31 0.9% 7.1 -16.1% -29.1% 0.2% 1.1 1.3%

Tu2 h Prl1m Iduls by G if kti^ S., ad y District - h 199M

I l_ ified oimhn Mttn

CWAI ict SluS All Teati:Wl 1UN11 617i8 State tIqlifid: (Owl. # _I.)

Distt N F N F N F1F E FTod N F Wlt

hd.tm 013 21 55 2 5 - a a114 85 s n 431Lerk 1 3 52 2 74 - 6 1 3 3 135 1 11 8!1 1053km 11 60 1494 13 - 2 1571 131 70384mu 13 75 116 3 8 2 2 n 21241 232 U 13U41q U t7 21 78 - 5 1 - 33lO 143 177 631 8 7

Ibhk's H i 1 33 20 63 - 5 - 5 31 106 13131 5 634dbig 5 16 17 55 - 1 - 2 22 74 U 67 335 W's i 5 2 7 16 - 2 1 1 i3 21 31 5 1Q 247Iltlwy 7 16 ID 25 - 7 - I 17 -19 27V 316ubiasdia 6 14 31 3 5 1 - 21 56 77 145 22S 3VO

TOtl 9 1 16 613 9 47 6 14 25 95 121 4 51 54 640

Wo Fl91 0 194 11 669 12 51 2 11 25 9!5 11U, S 25 IV 03 6225

*Op IPA 3 5.5 -U.% -8.4 -25.1k -7.3t2010. 27.3 9.6% 7.61 8.1k 1.51 3.1% 2.3t

- 67 -

ANNEX ITable 5

LESOTHOEDUCATION SECTOR DEVELOPMENT

Primary Examination Results by District - 1990

Cidltes 1st Clam ad lm d lam Pm: Flledi Pm:Distrid: ItoS: $d. w Rcm lim Pmi §mw brut Mu bmw Ftmet

UhNl- 10? 157 6.2 160 1.6 2 51.0 1419 43 73.9ubr 40D 3 8.0 724 14.8 2M 92 36 1174 760kum 10 3 9.5 me 14.4 107 93 220 O1 7.3ROM RC 942 5.1 128 9.8 152 6.9 522 101 83.8rte 333 16 4.9 31 1S 15 6.5 264 95 72.8

Uhle's N1k 2444 9 10.6 16 16.6 I 1S .9 1V83 Sl 79.1Om*g 16 6 5.4 195 12.1 8 52.8 11W 477 70.3! Ne'slW 917 576 2 166 18.1 %561.9 191 1N 8I6.3MAm 1071 1 3.4 98 9.2 645 1.2 779 2!1 72.7ltsdm 130D 93 7.2 149 14S 678 5.2 90 3NJ 73.8

l 2M76 2514 9.3 417 15.3 1449 79 21M13 6143 77.5

WI U 2611 271 10.7 1111.6 13M19 sa.0 2155 S 82.3

Quip 4.% -9. -1.4% -143 -3.1 4.01 0.11 -1.9t 32.3t 4.

ft vif fu w'p to rp st vnap_ iss h grad_ds aW dwp b taet d1ffbIdty, rt poil ility.

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ANNEX 1Table 6

LESOTHOEDUCATION SECTOR DEVELOPMENT

Nk*r of RquW in krbty Scols by Ap, 6rab a b Sus - 1990

Gr*aeStitrdA( (an 31 1 2 3 4 5 6 7 All StWidOec 19): Ible Finle Nate Feile Vale feale Kale Feule Ible Faule Hale Feile Vale femie Kale Fmle Total

4 352 38 - - - - -328 6 1454139 69 81 ----- 1523 141 0337 31 3 31 443 51 - -- - - -- 30 315 7930 327 X%1M 126 1W1 219 24 24 - - 34 499 39 2 1 151 174 41 703 73 91 9 7 - - - - 434099 85210 10 n8 72 o 20 30 M619 2 4333 18I 5 5 - - 4710 428MU 612 3' 16 W 1412 1331 542 M 106 21 12 31 8 1 42 317 715012 273 162 937 3 3121101 769 84 2D 43 42 17 5 2 391 36E 7t3 1Q SS 53 X7 2S 3 119 109 52711 I 275 29 138 g 32X1 681714 0 A 247 117 676 418 M 659 5273 464 87332 295 538215 2 13 10 47 4 24 ON 446 6176 323 96 01 633 2370 50101 15 5 55 5115 11 31 25 443 331 11 m6 1613 1433667 -- 31 11 n2A 1 83 222 154 242 2474 957 951 1I18 -- - - 6 9 31 U4 52 57 19 23 217 636 8 101 419 - - - - 39 16 28 14 40 22 10 53 27 186 .312

- 3 5 35 12 6 1 128 34 16220 - 7 3 3 6 43 9 52

Toal 111693 9 7i1 1S 6343 4672 44 2P 33 15235 23 1229 25 7 3 3WR3 76371

total 1 LM 11630 90W4 7130 0011 44 4539 2674 33 1!18 2327 1286 272 396 3186 1765

aOip .1%44 -1.1 1.1% 1.3% 3.% 2.1 -0*. 8. 1.1% 3.1 0.1% -4.4% 4.0% 0.7% -2.2% -1.4

Nie: tIme ats "dis de si NrIN wm In thesUm srnt d a the peviws ww.

- 69 -

ANNEX ITable 7

LESOTHOEDUCATION SECTOR DEVELOPMENT

Drop-Out Rates in Primary Schools by Grade and by District - 1988

Both Sexes

Grade/Standard:District: 1 2 3 4 5 6 7

Putha-Buthe 10.9 2.3 8.5 6.6 11.4 10.0 10.4Leribe 12.0 5.3 5.3 7.9 8.2 10.8 6.1gerea 9.3 5.3 5.9 8.4 10.7 11.2 6.4Maseru 14.4 3.4 6.8 8.6 7.6 9.4 5.0Nafeteng 16.6 9.0 6.6 11.5 9.5 10.3 8.3Mohale's Hoek 14.1 4.9 7.9 7.6 12.2 15.1 10.2Quthing 14.6 9.4 6.9 13.3 14.0 11.7 9.0Qacha's Nek 17.2 8.1 7.8 10.7 14.9 10.1 1.1Mokhotlong 16.7 7.2 10.3 11.5 10.5 13.2 14.6lhaba-Tseka 16.0 7.3 11.1 11.3 11.4 20.2 8.3

Total 13.7 5.7 7.1 9.2 10.1 11.5 7.2

Total 1987 11.3 4.5 4.5 7.5 8.0 10.4 2.8

Change 2.4 1.2 2.6 1.7 2.1 1.1 4.5

- 70 -

ANNEX ITable 8

LESOTHOEDUCATION SECTOR DEVELOPMENT

Eroli.mt in Sm Sdvols by Ap h ad a by Sex -r h 1990

Cr&WFom:Ap (as of A S C 0 E All F :1 Oec 19): Nile Feel Ile Feli Kale feel. Nile. U e1 Nile Er le rle We Wl

<12 612 1---- 8 13 2112 68 12 o 12 - 14 - - - - 781 26613 338 I 94 164 26 8 15 1 - 467 IN1014 667 1rC 246 51t 5103 14 3 --- 978 248 36615 all 210! 5 16 191 i 58 34 1l4 - 131i0 63n 6316 1237 231 Ns 11 410 9 90 313 20 83 2m ? O11191 116111 835 1583 517 414 6 131 257 30 5841e8 933 m ml ui 749 1i 43 m 1 27 U4 31!3342 1 V19 4 309 '7 414 511 622 314427 35 4U2 2 O 2W 45320 267 91 391 is 15 ) 314 32 263 3 57 18 12133821 95 324 8 61 232 3 3 15U 219 154 91 447 12 37 19 76 15 1M5 106 C 6 161 56 233 23 12 8 19 5 63 21 50 256 23 212 2 29424 - 2 5 5 26 7 3t 41 213 57 16124 4 0 8 6 115 243 32 a Qi a1

Total 643 1V3 4784 TN 3614 512 m 2546 NG 0 16273 463

totall 5 !1i6 lS65 7616 lCU4 611 22gn 33 13 1531822 60U64

fht 9.12 6.% -3.5 -1.5% 401. 6.2%-1.61 0.6% 6.l 0.9% 2.20 3.1% 2.71

LESOTHOEDUCATION SECTOR DEVELOPMENT

Number of Secondary Schools, Classrooms, Classes, Pupils, Teachersand Pupil:leacher Ratios by District - Narclh 1990

----------------------------------------------------------------- __--____________-_-____-____-

Number of: Number of Pupils: Number of Teachers:Class- -------------------------- Percent P:1

District: Schools rooms Classes Nale Female Total Boarders Qual. Utinqual. Total Unqual. Ratio

Butha-Buthe 14 102 96 1332 2117 3449 486 131 33 164 20.1 21.0Leribe 35 234 222 3728 5286 9014 1164 319 97 416 23.3 21.7Berea 20 130 137 2385 3350 5735 420 205 38 243 15.6 23.6Naseru 39 380 370 5590 7550 13140 1511 587 63 650 9.7 20.2Nafeteng 21 140 143 2069 3600 5669 857 213 39 252 15.5 22.5Nohale's Hoek IS 108 102 1250 2260 3510 384 152 27 179 15.1 19.6Quthing 11 58 59 937 1340 22?7 38 l8 38 116 32.8 19.6Qacha's Nek 6 31 33 498 660 1158 148 45 17 62 27.4 18.7Nokhotlong 7 44 38 418 788 1206 345 50 21 71 29.6 17.0lhaba-Tseka 7 27 31 423 720 1143 1-58 54 6 60 10.0 19.1

Total 175 1254 1231 19630 27671 46301 5511 1834 379 2213 17.1 20.9

Total 1989 171 1245 1219 18235 26829 45064 6196 1803 347 2150 16.1 21.0

Change 2.3% 0.7% 1.0% 2.2% 3.1% 2.7% -11.1% 1.7% 9.2% 2.9% 1.0 -0.51

Note: Included in 4he teacher count are 485 expatriate teachers.

I0.-s

LESOTHOEDUCATION SECTOR DEVELOPMENT

leuJws ;i 5e* Sdols by Oalif icat, District aWd by Naituity - laxh 190

D gru 11Ni~v ST.C. oc Eo iablet P.H. ad CAM0.S.. Iqlifisd All leadrs

Stice hbl-SciK Scic ItSti Scii e Sciace NM-Scimei Icie Nm-ScimceOistritd: Loa EqWt Lo1 E = L1 W LoI Eat Lacal EWpatLoa Ei Local a l EWp Loal (W4 lotpl

&lwbht 7 11325 1 22 1 6 2 - - 3 - 4 - 9 - 1 1D 64lerib 14 3C 509 3 33 - 1N 2 - I - - 5 - I 2 315 J 419DMa 8 25 20 - 1 - - - 1-4 1 -10 Sl 9 41bur 3C61 J2 so 2 986 - 11 6255 E 166 R51tq 16 21 0 3 23 3 69 3 - I 10 1 3 - 35 1 16 58 2A4

Obk's N1S li 22 23 Z2 15 I 53 - - - 5 - - - 27 - 1M 65 179zim9 4 131 8 - 31 - - 1 - 2 1 35 - 94 22 6

'sm* I 8 6 3 - 15 - - - 4 - - 11 1 46 16 62ftilb*q - 8 5 3 12 - 17 - 1 - 4 - 1 - 2a - 60 11 71Uidb&-ld - 6 3 7 7 - 18 - 3 - 10 - - - 6 - 47 13 60

low 92 213 33 3161 7 61 11 6 2 65 1 25 5 353 4 41J32 221

Mlal 1D 84 3 3D3 26 30 6 62 19 5 - 62 2 13 3 320 11 1639 511 215

OuFp 9.3 4.9 -3.1% -1.9% 7.2% 16.7n 9.Q -21.1% 2LSO B -2 A1 -98.0% 92.3 (6.n1 10.3 -6.6t 5.71 -5.1% 3.1%

lb z

I- X0

LESOTHOEDUCATION SECTOR DEVELOPMENT

Facilities Available in Secondary Schools by District - March 1990

*iSuIcra FACILlTIESITeacbiss 1Itrto Livion Qinarters SamitetiesCl*uo- .... Off I am Stora Library Assmbly Staff Do.1mg Ktcb.a Pit Flub_ _ _ _ __ Ibl I~~~~~~~~~~~~~~~~~ House , Hal l L_._ T., OWL

Baths-Butb 102 14 6 20 1i 7 S *2 a 2 10 12 4Laret 2" s0 44 29 9 4 189 8 7 19 23 9Sese 1U is 11 24 17 6 6 69 1 4 1J 17 6Uasrs 176 a 81 64 64 2a 1i 226 1i 16 a1 19 26Mafeteg 1Cl 19 11 27 20 10 6 90 a 6 1i 1i aRo&l'sso ek 11U 14 10 28 27 S 6 104 6 5 t0 13 6QuhIe1 64 11 4 1i 6 2 3 5 * 1 4 10 aQaha' ls* t0 a 4 7 a 1 23 8 2 5 5 IRotbottoag 46 5 a 1 9 2 1 J2 2 2 S 5 IThaba-Teosk sO 4 2 . 6 5 2 1 20 1 1 1 6 1Total 1313 177 97 237 197 72 47 Su 42 46 IIC 133 6STO"al 1989 1245 173 g0 216 190 70 43 Soo 17 43 112 113 64a.w 6.911 2.311 7.83 9.73 1.71 2.91 9.3% 4.53 13.65 7.03 2.73 17.71 1.63

Rota: The nwbore for lIlbrary, assembly ball, doeritory, dining hail titchen, pit latrino and flugh toilot retfr to ths count of scboole with wsubfacilities. The rmoining items arm the total room within the district.

a- Zm

I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~t

- 74 -

LESOTHO ANNEX IEDUCATION S~ECTOR DEVELOPMEN't Table 12

Jumior Certif icate banation Ruilts by Ditt It - 1990

Form A Fom C Gro5s ber b of Pa": Percent Petent:NW of Iur'ue Errol Perent Sat the r 1st 2r Ird tmer I Sit Fr A ' 1989District: 1108 1940 Vsted XC Ea Failed writ Class Class Class Passed Passed Intake Pass

Iattl 1181 72538.6 0C 281 3 139 74 16 3.2 18.3 45.2Leribe 2912 1657 43.1 1368 Sf 9 6 9)2 136 m S.8 26.5 64.06cma 2 1195 42.2 98 419 2 34 395 118 5t9 5 26.6 62.6Nabvu 48 2476 39.4 2227 799 15 I00 1078 235 1428 64.1 35.0 68.3lbfeteq 1951 1118 42.7 1x7 439 5 24 267 T 38 4.9 19.9 53.3f,Ible's NA 1350 740 45.2 C2 26 3 282a5 61 3776.6 D27.9 69.0Airq t84106 44.8 379 122 2 8 l91 56 X? 61.8 29.2 75.2Wistalk 425 228 4.4 189 3 - 9 129 16154 81.5 16.2 n.6

kIftl* 510 213 58.2 196 6 6 281 16 151 77.0 3.6 74.0uTi-Isk 59 2417 57.4 196 1 1 3 3 12 6.8 22.2 68.3

Total 15941 90 43.0 762 3IN1 2142 3M 024 421 9.2 27.7 64.0

Total 1391 14012 I1S 44.5 7015 32$ 92 443 321 673 t449 64.0 3.2

Osu 7.3 10.1% -1.5 6.4 20.41 533-2l .3% -03I 72.4 -1. -4.8 -2.5

Note: M1y sclols cadiclts am imuhAd in this table.

kus fnt ted is tbe lms e sb&ts fru fru Ato Fr C PIOted a aperwtap of Fw A.

Ce prid m 0 Catificate ESmmti bn ts by Distris t -191

Iit brwied nst NEp W dAW Pt F _w* pmul-Fag FarE - P.ilsdu DOisn Toa e of

Distrct: (13) 1100) r Paet sit Failed B.C.E. I 2 3 Pame sit tike

&ft4iU 443 ao f %3 21 16 16 I1 21 13 15.6 7.4LvIb OA5 3129 33.6 516 3 A9 12 39 e 2..2 614

u 52 3122 9 37.1 i 12 212 51 91 3.9 17.81U ll9 1245 7 37.7 ins o 8 0 27 5 2 35 2.2 17.51i 627 40197 3L 414 7 22 39 56 4 53 12.8 &5

Mob's l 34 99 28.0 2 1U5 1isa a 98 4.3 3U9ob9 140 39 n 39.4 ID 1 09 -33 2119.6 11.1lbdW .kk 113 35 3 3.6 75 - 26 3 17 28 4 6.3 43.4

lMI 90 5go 1 3a 6.7 - 16 321 15 40 41.4 5-Tidu i2 31 t 15 28.4 34 - 2D - 4 ID 1412127.5

Total 5141 33199 1922 5 l 131 22 74W e 51 8 S V27.8 17.1

W bbl 191@~~~~W V 463 IZI 1411 30.2 312 9 L S31 me 13 30 55 R 97 31. 21.S

OwIh 13.1t 3.0: 3.5% 6.3 2.8329.3 12.% -34.8.91 0.2t -102 -4.1 4.4

Mbe th Fam D ht ad Fh E uniut fip. mi thls tile a slIl t1Y lwprtim u u iml table n t lu ic ms mduokm ro sh sat ho eams.lb fi trw St. Rem ae mt Wmluid in this thbIl.

LESGTHOEDUCATION SECTOR DEVELOPH-IENT

Enrolment in lechnical/Vocational Schools by rourse, Year of Study and by Sex - 1989

Year of StudytDuration Minimum 1st Year 2nd Year 3rd Year All Years

Course: (Years): Entry: Male Female Male Female Male Femave Male Female Total

Commercial Studies 1 PSLE 2 106 6 50 - - 8 156 164Home Eonomics 3 PSLE - 268 - 207 - 197 - 672 672Leather Work 3 PSLE 10 - 6 - 3 - 19 19Bricklaying 3 JC 134 1 103 - 35 - 272 1 273Carpentry & Joinery 3 JC 35 6 35 5 9 - 79 11 90Dressmaking 2 JC - 16 - - - - - 16 16Fitting A Turning 3 JC 11 1 9 - 18 - 38 1 39Motor Mechanics 3 JC 44 - 37 - 40 1 121 1 122Panel Beating 3 JC 12 - 7 - 6 - 25 - 25Tailoring 2 JC - 15 - - - - 15 15Upholstery 2 JC 5 1 5 - - - 10 1 11Architecture 3 COSC 4 8 3 2 2 1 9 11 20 -Bas4c 'lectronics 3 COSC - - - - - - - - -Civil Engineering 3 COSC 17 5 15 8 11 - 43 13 56Electrical Engineer'g 3 COSC 16 1 8 2 7 4 31 7 38Electrical Install'n 2 COSC 32 - 27 - - 59 - 59Nechanical Engineer'g 3 COSC 8 - 8 - 15 - 31 - 31Plumbing 2 COSC 19 - 15 - - - 34 - 34Mansory 4 - 2 - - - 6 - 6

Total 353 428 286 274 146 203 785 905 1690

Total 1988 320 399 274 330 167 180 761 909 1670

Change 10.3% 7.3% 4.4% -17.0%-12.6% 12.8% 3.2% -0.4% 1.2%

Note: lhe minisum entry qualifications refer to the Primary SchoolLeaving Certificate, the Junior Certificate, and the ILCambridge Overseas School Certificate.

I'_

- 76 -

ANNEX ITable 14

LESOTHOEDUCATION SECTOR DEVELOPMENT

Enrolment at the National Teacher Training Collegeby Course, Sex and by Year of Study - 1989

Year of Study:Name of 1st Year 2nd Year 3rd Year All YearsCourse: Male Female Male Female Male Female Male Female Total

P.T*C. 11 94 15 109 35 119 61 322 383A.P.T.C. 5 21 3 11 6 29 14 61 75S.Tr.C. 14 51 13 37 25 40 52 128 180S.T.T.C. 10 - - - 10 - 20 - 20

Total 40 166 31 157 76 188 147 511 658

Total 1988 52 233 54 226 60 240 166 699 865

Change -23.1% -28.8% -42.6% -30.51 26.7% -21.7% -11.4% -26.9% -23.91

- 77 -

ANNEX 1Table 15

LESOTHOEDUCATION SECTOR DEVELOPMENT

Full Time Students at the National University of Lesotho by Course.Faculty, Sex and by Nationality - 1989/90

Basotho------------------------------------------------------------- __------------

Certificates First Post Graduate All& Diplomas Degrees Courses Courses

Faculty: Male Female Male Female Male Female Male Female lotal

Education 51 27 54 66 3 6 108 99 207FSS 6 14 120 173 - - 126 187 313Humanities 10 15 81 149 - - 91 164 255Law - - 35 39 10 13 45 52 97Science - 1 143 75 - - 143 76 219

Total 67 57 433 502 13 19 513 578 1091

Non-Basotho

Certificates First Post Graduate All& Diplomas Degrees Courses Courses

Faculty: Male Female Male Female Male Female Male Female Total

Education 2 3 4 - 4 1 10 4 14FSS - - 45 38 - - 45 38 83Humanities - - 15 20 - - 15 20 35Law - - 15 5 3 2 18 7 25Science - - 1S 10 - - 15 10 25

Total 2 3 94 73 7 3 103 79 182

- 78 -ANNEX 2Page 1 of Ii

KINGDOM OF LESOTHOEDUCATION SECTOR DEVELOPMENT PROJECT

u reply piasa quota: CabW addiw PLANNOFF

Vaur tafuec T.IOplw 3U619 Kitu

OFCE OF TE IWISTEOF PLANNING, CO=WCAZNL MANPOWERDEVELOP14T

P.O. Box KS 60MASERU 100LESOTHO

CPO/C/4/014/12 4th June, 1991

Mr. Edward V.K. 3aycoxThe World Dank1818 II Street, N.W.Washington, D.C. 20433U.S.A.

Dear Mr. Jaycox,

LETT= GP ZDUCAYION D13UYUOINH POLXCT

I am writing to you in connection with the proposed Educ-ationSector Development Project, to inform the InternationalDevelopment Association of the steps that the Government ofLesotho has already taken, or is planning to take, in the contextof its Fifth Five Year Plan to improve the education system inLesotho. Through a process of reforming, expanding andstrengtheningj the education system, the Government aims atdeveloping a more effective and equitable system, which will besustainable within available resources. it is also theGvovrnment s intention to rationalise the re2ationship betweenthe Ministry of Education (HOE) and school proprietors, and toensure greater involvement of parents and the local community insichool management.

Proposed Rerorms 1991 - 1996

During the Fifth Five Year Plan period, the Government willintroduce a major education reform programme whose objectives,actions and timetable are net out ini the attached policy matrix.Some-I the major elements are as follows:-

2.. sector Financing and limeniu&e

It is the Government's intention that education recurrentexpenditure grow in real terms with a consequent incresais ineducation's share of the recurrent budget. The MOE's racurrentbudget will be increased kV 54.4% in real terms between FY1990/1991 and FY 1991/1992 (due in part to a m~ajor revision ofteacher salaries) and by 4% in real terms during each arubsequent

1

- 79 - ANNEX 2Page 2 of 11

year of the Fifth Plan. The NOE will allocate at least 70% otthe total increase in the NOE recurrent budget to primaryeducation and will continue to maintain this allocationthroughout the plan period. Furthermore, it is Government'sintention to ensure that during the plan period there will be noreal increase in the NUL recurrent budget.

The Government intends to rationalise financial management of theeducation budget. To achieve this, by September 1991, the HOEwill complete an evaluation of financial management capacity anddevelop a plan for the introduction of cost-centre basedbudgeting and thereafter immediately implement the cost-centredbudgeting system.

2. Institutional DeelomntSchoo1 Managemnt

(a) It is the intention of the Government to rationalise thestructure and management of the MOE. In this regard the NOE hasdeveloped a plan for restructuring which has already beenapproved by the Government. Phases 1 through 4 of the plan willbe implemented before March 1993 and the full restructuringcompleted by September 1994.

(b) In order to reduce the role of the MOE in the directprovision of teacher training, the Government has decided togrant autonomy to the National Teacher Training College (NTTC)and the Lerotholi Polytechnic (LP). By September 1991, thegovernment will draft the necessary legislation for this purpose,and by March 1993, will have enacted the necessary legislationand commenced implenentation. In this context the MOE shallimprove the structure and organis&tion of the NTTC, including theappointment of coordinators for the three new divisions:Primary, Secondary and In-Service. The three new divisions willbe established and become operational by March 1993.

(c) In order to rationalise the relationship between the MOEand the school proprietors, it is the intention of the governmentto revise the legal framework and to clearly define the role andresponsibilities of the MOE, school prcprietors and parents inthe provision of education. It is intended that the legislation,which includes input from the proprietors, will be enacted beforeSeptember 1991. In order to iincrease the involvement of paitntsand the cormnity, the MOE shall establish a plan for assistingcommunities to form school committees as provided for in thelegislation.

(d) The revised legislation will also provide for an improvedteaching service, with terms and conditions of service similarto the rest of the civil service. This will involve therestructuring of the Teaching Service Commission and the TeachingService Drtartment.

2

- 80 -ANNEX 2Page 3 of 11

3. Erimary Education

(a) Quality Improvement

(i) The MOE will improve the pupil: teacher ratio to 54:1, withthe ma4or emphasis on Standards 1-3, by creating 260 postsannually for primary school teachers, of which 70% will beallocated to lower primary.

(ii) The Government further intends to expand the network ofdistrict resource teachers (DRT's) to 70, one per sub-district,by July 1994. Before then the MOE shall identify and recruitcandidates for DRT training and will appoint a DRT Coordinator.

(iii) The Government will set national priorities for the primarycurriculum, establish the time available per subject in line withthe priorities and revise subject syllabi accordingly. The MOEwill develop revised terms of reference for the NationalCurriculum Committee (NCC) and an implemen'.ation schedule forformulating the national timetable and revising syllabi.Thereafter the national timetable will }e adopted and therevision of the syllabi commenced.

(iv) The MOE will improve the quality of pre - and in-servicetraining for primary teachers, develop a plan to vpgrade in-service certification programmes and establish a Division of In-Service Education.

(v) The MOE has decided to transfer the administration of thePrimary School Leaving Examination (PSLE) from the Ministry tothe Examinations Council of Lesotho (ECOL). Consequently astudy to examine the financial and human resources implicationsof the transfer will be carried out, and the transfer of someadministrative functions completed by March 1993. The completetransfer will take place by September 1994.

(vi) The MOE has decided to evaluete its education withproduction programme and will complete the evaluation togetherwith the development of specific recommendations concerning thefuture of the programme by December 1992. Thereafter thegovernment intends to implement the recommendations inconsultation with IDA and USAID.

(b) 1fficiency

(i) To improve the efficiency of the primary education systemthe MOE intends to eliminate the enrolment of under-ege pupilsin primary schools by Decenber 1992. Prior to that the MOE shallconduct an information campaign to advise schools and parents ofthe tighter enforcement of the rules on admission of childrenunder age six. The government shall enforce the restrictions

3

- 81 -

ANNEX 2Page 4 of 11

beginning in January 1992.

(ii) The MOE will also restrict the admission of over-agechildren into Standard 1 commencing July 1994. Before that timean information campaign to inform parents and schools will becarried out.

(iii) The MOE has decided to limit repetition rates in primaryschools to two repetitions per cycle, and will implement thisrestriction by March 1993.

(c) Assessment

To improve school-based assessment of pupil achievement inprimary schools MOE will distribute and begin pil;' t-testing ofend-of-level test guidelines in Sesotho, English a.'. mathematicsin five sub-districts. Thereafter the pilot will be evaluatedand necessary modifications made.

4. Secondary Education

(a) Ouality Improvement

To improve learning in core subject areas, the government willdevelop and implement a strategy for introducing continuousassessment in science at the junior secondary level on a nationalbasis. The system will then be extended to English andmathematics at the junior secondary level.

(b) Efficiency

There has been a proliferation of small inefficient secondaryschools. To control their numbers, the Government intends toenforce more strictly the existing regulations on theestablishment of new schools. The MOE will comp.i a a schoolmapping exercise and, by March 1993, revise the regulationsgoverning establishment of new secondary schools. The MOEintends to raise the student:teacher ratio to 25:1, and will beallocating teaching posts based strictly on the minimumstudent:teacher ratio by March 1993.

5. Technical and Vocational Education (TVE1

(a) To lower the unit costs of TVE training tAe MOE will developplans to pilot test the introduction of evening classes at 12institutions.

4

- 82 -ANNEX 2Page 5 of 11

(b) To upgrade industrial training and skills testing, theGovernment will review the Technical and Vocational Training Actto increase responsiveness to industrial needs.

(c) The Government will also try to generate increased revenuefor industrial training and establish a system of apprenticeshiptraining.

(d) The Government intends to evaluate the effectiveness ofcurriculum diversification at the secondary level by carrying outan independent evaluation of the relevance and effectiveness ofthe practical subjects offered ir secondary schools andthereafter implement the recommendations.

6. University Education

(a) Government will improve the academic standards inundergraduate courses at the National University of Lesotho (NUL)through the implementation of a modified academic programme inthe 1992/1993 academic year.

(b) To generate savings in the operating budget of NUL, theGovernment will, by March 1993, reduce expenditure on researchinstitutes and non-teaching items by 10% through cost-savingmeasures. By September 1994, expenditures will be reduced by 20%from the 1990/91 level.

(c) A staffing plan for the NUL academic programme will involvethe freezing of new recruitment during 1991/92. A 12:1student:academic staff ratio will be achieved by the 1992/93academic year in all areas except science and agriculture, wherethe ratio will be 10:1.

(d) To enhance NnUL governance and policy, the government willrevise the NUL Act and Statutes and, by March 1993, establish aDevelopment and Planning Office responsible to the Vice-Chancellor.

7. Teacher

The Government will improve incentive allowances for teachers inhardship areas and housing for teachers in mountain areas byDecember 1992. Steps to improve the career structure forteachers are already in place.

8. Monitoring and Evaluation

(a) The MOE will improve its capacity to monitor and evaluatethe system by providing training for MOE person.,el and byestablishing an information system on primary education. In

5

- 83 -ANNEX 2Page 6 of 11

addition, there is a need to provide training to the 1PldruingUnit and to the Inspectorate, to prepare training schemus furschools and to establish an accurate system of data collecti-nantd reporting. The NOE will investigate specific aspects ofeducation to improve quality and formulate corrective measuresin accordance with the findings of the studies.

(b) The MOE will also establish a system for guiding andmonitoring plan implementation and will improve its capacity forannual planning and financial budgeting.

Yours Sincerely,

A. L. THOAHLANE

MINISTER OF FINANCE

6

DRAFT POLICY FRAWURGI FORt OE FIFTH FIVE-YER EDUCATION SECTOR PLAN

OSJEM1NES ACTIONS TD BE TAM BY ACTIONSl TO E TA. BY ACTIONSl TO U TAMSSt0/01 3/03 9/94

A. Education SectorFAnanSinrnd Exnsnditurea

a. Education recurrent Education recurrent budget Education recurrent budget Education recurrent budget

*xpenditureto grow In real allocatIon to grow by at * lIocation to grow by at allocatlon to grow by at

terms, with a consequent least 54.4X In roel terms least 4X In real terms from least 4X In real terse between

Inerese I n educatIon'a share from 1990/91 1991/92 1992/93 and 1993/94 and by a

of the recurrent budget furthor 41 in roeal termsbetwoen 1993/94 and 1994/9S

b lncreas share of At lonet 760 of total At least 70X of total Continueto allocate at l*est

recurrent budget devoted to Increase In MOE recurrent Increase In MOE recurrent 76 of roeI recurrent budgetary

primry education }/ budget to be allocated to budget to be allocated to lncrasess to primry educationprimry education primary education

c. Limit recurrent budgetary No roel Increases In NUL No roel Inereasen in NUL No real Incress" In NUL

alloaetions to NUL recurront budget grant recurrent budget grant recurrent budget grant

d. Rationallofinancial Completesevoluation of MOE Implemnt coat-e-ntre based lImpement cost-e ntre based

mnag_ment of the education fInanecil mnagement capseity budgeting budgetingbudget and develop plan for

Introductionof coat-centrebased budgeting 0

B. Institu%tIonMlDeve omantSchoo I nacmnt

a. Rationalseathe structure Formal approval of MOE Complete Implemntationof Complete lmplementationotand mnagemntoof MOE r-structuringplan by the Stagos 1-4 of restructuring Stages 6-7 of restructuring

government plan plan

b. Reduce MOE role In the Dovelop logislationto grant Enactment of legisltiondirect provision of training autonomous status to LP and and lmplemntation

NfTC

c. Improve the structure and AppoInt Coordinators fr the Thre diviaIons *stablished Complete implementation

organisationof NTIC throe new divisions (primary, and operationalsecondary and In-servi o0)

d. Revise legal framework Governmntapproval of roevse Implemntationof revised Implemntationof revised

governing MOE-proprIetor education logislation logislation legIslan.on

partnership In th mnagumntof educstio. and the teachingservice

2/ Thlo would lncludeexpendituresnot only at primry but also for administrationand teacher support rolet" to

primary.

EUJTIVEl ACTINS TO SE TAUEN 9V ACTIONS TO SE TAKEN BY ACTIONS TO BE TAKEN BY9/91 3/93 9/94

e. Increase lnvolwvmntof EstS%IlIoh pIan for assiating Satlsftctory implementationparents and community In local coImun:Ieasto form school of the planschool manaem nt co=mI ttee ass provided for Inthe legislation

C. Imoeove_ntof Quality and.Effltciency In Primary Education

a. Improv, pupil :tech*rratio Create 26S additional posts for Create 200 additional posts for Create 280 additional posts forto 54sl with emphasis on SO primry school teachore of prImary school teachors durIng primary school teachers inl-3 which 70X w.II be allocated 1992/93, of whIch 7?5 wIll be 1193/94 and a further 260 poststo lower primary allocated to lower primary in 1994/9S of which 761 will beallocated to lower prImary

b. Expand network of 41atrict Idontify and recrult candidates Complete tr i Ing and post on MaiIntaIn network at 1 DRT perreource teachers to 7 ftor DRT traInIng and appoInt DRT per sub-district sub-districtteachers (I per sub-dlotriet) DRT (In-service) Coordinatorc. Set national prioritiestor Dev lop revised ToRs and National timetablo adopted Syllabi revled In allprimrycurriculum; establish constitutionfor NCC and and revision of *yllabl for subjects and lmplemntationtime ovaltble per subject In ImplemAtatlonechedul tfor all subj ect underway in schools underway In corelIne with priorities; *nd forulatingnational tlmetable subjectsrevIso subj ect yl lobI and syllabiaccordingly

0d. Improve quality of pre- and Dev lop s pIan to upgrade Upgrade existing LIETln-service training for prlmry In-&ervIco certificatIon cortificate to PTC equival-nceschool teachers programme and establish a and establish strems for upperdivislon of In-servico ducation and lower primry in both pro-

and In-sev Ico p rogrammes*. Tr&nsfer PSLE from MOE to Develop ToRe for the study of Cooplete transfer to ECOL of Completion of transfer asECOL financial and human resource packnsglir, printing, recomendedby studyimplicationsof transferot PSLE distributionand collectionto ECOL

f. EvaluatoEducationwith Dv-lop ToRs f r an Independent ComplteovaIat ion of the EWP Implemnt rocommndatlonsProduction (SW) programme evaluatIon of the EWP programme programs IncludIng developmentof specific recoinndstionsconcerning the future of theprogramme

g. Eliminat enrolloantof Inform schools and parents of Enforco restrIation on Enforce restetrIion onunder-age papils In primary tigbter onto.cementof enrollmntof under-age enrollmentof under-age |achools rgulatlonare. non-enrollment pupils baginnIngJan. 1192 pF pila * of pupils under gm, 6X

co0rh

U-

||al3JwI ACTIUNS To 35 TAKN By ACTIS 10D O TAMI BY ACTIS TO 3E TA3N byS JO11 3103 9014

h. bstrlatsdosoahnof Complete guldelInes for phasing Coplete implms_tetionofever-ag pupils In primary out over-ag pupilI ineludino infor_ ttoncampanIon nd._chooI detailed design of information begI aning Jan. 1904, enforcecampaign to alert schools and rs IetrIconeon enrollm_ntofparents of new restrictions on over--g pupils focus Ing onthe admiasIon to Std. 1 of lowland oreaschildren over age 6

1. Limit repetitton rate In Cowsleteguidelines for Complote impleme_tationofprimty schools liiting rep tition to two per Information cawpIgn ondcyclo including detailed begin onforce _ntofdesln of Informti.ncspsIgn retrictionson repetitionnew restrictions on repetition In lowland *reas

. Improve school-based Distribute ond pilot toot Compl-te workshops for DRTassessmentof pupil echievmment end-of-level uideldines in S In continuous asermentin primary school sub-district and evoluatepilot using revised guidelInes, anddisseminate guideltnes toschools

D Igrc Gom.lftOugh ,nd

a Improvo learning in core Develop strategy for Introducing ITpl"ent system of continuous Impl ement system ofsubject areas continuous aosesooment In sceInc- assoows._t In sc Ince at junIor continuous assossmnt Inon a national basis secondnry l-velj develop English and mathematico at

continuous assssmont tests for Junior-sccondary levelEngtIoh and mothematIas

b. Control nub re of smll Qo vernmntto begin strict Complete school mapping exorcise Satisfactory implementationur aconolic scondary *nd high enforcementof existing and revIse regulatIon governing of revised regulationsschools regulations on est*6lishmantoof establiIshmnt of now school asno- secondary and high schools necessary

c. Raise student:teecherratio Alert secondery/highochools of Be In al locating teachIng post. ContInue allocating teachingto 26s1 government IntentIon to allocate strictly boasd on minimum posts strictly based onteaching posts according to student:techr rratio minimum student:stecher ratIominimum student: tacher rati o of25:1

Edu;atftlog and V"tnl n

a. Lowr unit costs of 1VE Develop plans to pilot the legin Imploentationof evoning Evaluate the pilot andtraining Introductionof evening clsse"s classe deter Ino whether to continue aat LP, TSTC, LTS, Loribe and evening claseseight other Institutions o

I ZU ACTIJONS TO 1E TAM By ACTIONS TO BE TII BT ACTIONS T0 1 TMJ SBY9/n 1190 9/94

b. Rvi.wi ToTchnic.l and Engag a conuultnntto revIew Reviso legislationand implemnt Continwe implemntationVocational Tr ining Act to portIon. of the TVE Act relat'ng changesincresse responsivennesto to composition of TVE Board andindustry needs in-servicetraining

c. Generate Increased revenue Dve lop Tell for feasibIlIty Complete study and begin Continuo lmplementationfor Industrial training study of an Industrial training lmpl_entstionot recommendationslevy

d. EstabliIhsystemof Dve lopToR to setudy the Compl utstudy and begin Continue lmpl_ntationapprentieshiptraining fessibiIlty of an apprenticesbip lmpl_entationof recoendatlonsscheme

o. Eveluste *ffectivennsof Dve lop ToRs for an Independent Conduct Independ*ntovaIuatIonof Imploment plancurricuiumdivereifictlonat evaluatIon of the re levnce and the relevvnce and effectIvenesssecondary levl *ffectivenesof the practical of the practical subjectosubjects offered in secondary currIeculu and complete pIan toschool implement recomeandations

F. Xnrov t otof Iui t, andEfficiencl amt MLL

a. Improve acad_le m tandards CompIete det Iled pIan for Impleent dt le d pIan for Monitor and ref Ine progra_sfor underguate courses Implm_ntationof subject ystem ascadoelc year 1992/93 ODor modified course unit system

b. Generstt sa Ings In Agree with MOE/IDA on specific Reduce expenditures on research Reduce expendituresonoperating budget cost-saving meaures on rosearch Institute* and non-teaching items research institutes andI nstitutes and non-teaching Items by 16X from 1990/91 lovel *nd non-teaching items by 20Xcomplete study on further from 1990/91 levelcost-containmentin non-teaching

c. Staffing pIan for NUL Froez new recruItmentdurIng Achlve 12:1 *tudont:acad_Ic MaiInt In student:staffratIonacademic progra caed e year 1991/92 to 1990/91 staff ratio In ell areas (except at 1092/93 levelslevel scelne and agriculture) and 16:1in sciences by ocademlc yoer1092/03

d. Enhance NML governmnt and Government approval of rev Ie d Estabish NUL dvo lopment andmanagement copaeity NUL order and statutes planning offie rusponsiblodIrectly to the Vlce-Chancel lor

0. Conditionlof Service for TAneher Q

a. Improve Incentive Identify schools In hardship MeIntaIn real val of hardshIp MIntaOin rel vlue of hardshp I -IlIowsnces or teachers In arnea and estabisoh hardship allowance allowance ° thardshIp areas a llowance for teachors In theoschools

J

CUJECTIVES ACTIONS1TO BE TAKEN BY ACTIONS 1BE TAKEN BY ACTIONS TO BE TAKEN BY9J91 3/93 9/94

b. Provide housing for Identity areas in which teacher Implement "lf-help construction Continu, rl-helblp constructionteachers In ountaln areas housing Is to be built using of teacher housIng In identif Id

self-help constructionplan with areasmaterIals to be provided

a. Improve career-structure AssIm late ox Iting teachers Continue implementation Continue Implementationfor teachers Into now career *tracture

H. Monitorlnaand Evaluation

a. Improv- MOE capacity for SpecIfy traInIng needed for UOE Provide training to Planning Unit Imp Ionnt traIning schomo.monitorIng end evaluation personnel to estabiseh and Inspectorat.; prepare Improved data reporting

Information system on prliary training scheme for schools, procedures used throughouteducatIon Improve data recording by education system

Inspectors

b. EstabiIsh a speedy and De' Ilo? a llot of basic education Complete Initial data coll ectlon Establish routine process foraccurate syst of lnformatlon Indicatorsand a sample design and report disseminationof dat collectIon and reportingon primeary education for the informtlonsystem, In information

collaborationwlth IIEP orsimilor group

c. Investigatespecific Develop ToRs tor I study; e.g. Complot the study and Complot third study;aspects of educat3on to Improve causes of drop-out and repetItiaon dissminate Information; develop formulate corrective measures cqualIty (1 studIen) ToRs for, and complete, second In accordancewith study

study (e.g. caMses of teacher findingaattrition)

d. Estab lIsha systm for Dve lop guIdelInes for Develop targeted annual plans and Continue to d*, ap targetedguiding and monitoring plan preparation of annual budgets; prepare report for annual plans and budgets.lnformation lmplementationplan by each MOE government/donor revIew on status Prepare report for

programms, to Include objectivo of plan lmplementatlonby governmnt/donorreview onindicators, strategles and programs status of plan lmpleeghtatlonbudget, and *stabisch procodures by programm.for performance review

e. Improve MOE capacity for Develop plan to upgrade MOE Provide traIning to relevant MOE Provide further training toannual planning and finaneial planning, obj ctivebudgeting, officials, Including *1 heads of *al relovant MOE officlalsbudgeting and perfo'sncerevlw and programmes

engage f nancIal conou tant

lb

ee

tD .

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ANNEX 3Page 1 of 2

KINGDOM OF LESOTHOEDUCATION SECTOR DEVELOPMENT PROJECT

Lesotho Distribution of Fou!th Plan Capital ExpenditureSy Educational Category. 1985186-1990191

(M 000)

Category Amount Percent

Primary 19,664 15.5

Secondary 17,865 14.1

Teacher Training 24,647 19.4

Technical Vocational 10,710 8.4

Tertiary (NUL) 27,096 21.3

Administration 27,129 2X.3.

Total :27,111 100.0

Source: Ministry of Education Planning Unit

Lesotho Distribution of Fifth Plan Capital ExpenditureAy Educ~ational Categtory. 1991192-1995 196

CM 000)

Category Amount Percent

Primary 109,686 41.3

Secondary 32,208 12.1

Teacher Training 29,763 11.2

Technical Vocational 36,213 13.6

Tertiary (NUL) 8,482 3.2

Administration 34,208 12.9

Other 15,082 5.7

Total 265,642 100.0

Source: Ministry of Education Planning Unit

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ANNEX 3Page 2 of 2

KINGDOM OF LESCTHOEDUCATION SECTOR DEVELOPMENT PROJECT

Public Recurrent Ezpenditurc by Students - 1986187

Level Amount Students Unit CostIM 000) (Maloti)

Primary 16979.0 319128 53.2

Secondary 12609.0 37343 337.7

Teacher Training 1983.0 1109 1788.1

Technical Vocational 783.0 1435 545.6

University 8865.0 1119 7922.3Source: Ministry of Education

Recurrent Budaetary Targets for Fifth Plan Period (1991192-1995196)

I 90/91 J 91/92 92/93 93/94 94/95 1 95/96)

GNP 2675.2 3083.5 3609 4276.5 5055.7 5921.1GDP 1546.4 1821.5 2199.7 2686.4 3246.5 3859.7

CPI Index 100 113.3 127.6 143.9 163.3 185.4

TotRecExp (nom) 443.4 570.4 639.4 734.8 862.9 1004.5TotRecExp (real) 443.4 503.4 501.2 510.6 528.3 541.9X real inc --- 11.9 0.4 1.8 3.3 2.5

EdRecExp (nom) 72.6 127.0 148.7 174.6 205.9 243.1EdRecExp (real) 72.6 112.1 116.6 121.3 126.1 131.1X real inc __- 54.4 4.0 4.0 4.0 4.0

EdRec/TotRec X 16.4 22.3 23.3 23.7 23.9 24.2

- 91 -

ANNEX SPage 1 of 9

LESOTHOEDUCATION SECTOR DEVOPfENT PROJWCT

Proposed StructuLse and Operation of the Ministry of Education

A. THE CURRENT SITUATION

1. The ministry lacks the practical capabilities for strategicplanning.

2. The relationship between the ministry and the direct providers ofeducation must be clarified, paying special attention to the MOE'spartnership with school proprietors.

3. There is a need to distance the planning, regulating andmonitoring functions of the ministry from the administration ofpublicly-managed establishments.

4. A decentralized system of inspection and administration is neededfor the effective monitoring of schools. This requiresstrengthening the organization of ministry at regional anddistrict levels.

5. Within the ministry, salary patterns are inconsistent.

6. There is a need for clarity anit definition of the hierarchicalstructure within the ministry to enable effective communication.

7. Closer definition of individual responsibilities and tasks isrequired at all ministry levels.

B. STRUCTURAL ISSUES

Senior Nana2ement

The need tu relieve the Principal Secretary from theresponsibility for operational concerns will be fulfillec by replacingthe incumbent second tier of deputy principal secretary and chiefeducation officer with a tier of four senior staff, designated as 'ChiefEducation Officers (CEOs)*. One of these officers will be designated asthe *Deputy Principal Secretary", but all four would be appointed atgrade 17. Future projects will be managed within the new structureunder %he responsibility of the relevant head of service. The PrincipalSecretary will also be assisted by a Strategic Planning Unit, managed bya Director of Planning, which will be concerned with issues such asprovision and dissemination of statistics, liaison with aid agencies,overall budgetary planning, research and monitoring of educationaleffectiveness and generation of future policy opinions.

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ANNEX 4Page 2 of 9

The four areas of responsibility will be as follows:

Educational Hanagement

The CEO, Educational Management (COH) will be responsible for theorganization and deployment of the inspectorate, management of allschools and colleges, and in-service training and staff development.

(a) InspectorateThe COM will be assisted by five chief inspectors - one each at theHeadquarters School Inspectorate and the Further and Higher EducationInspectorate, and three at the Regional Circuit Inspectorates.

(1) HQ Inspectorate: A single chief inspector (HQ Division) willcombine the roles of the primary and secondary directors, who, asthe inspectorate expands, will be assisted by a deputy chiefinspector. Initially, the division wc-ild comprise eight subjectspecialists as well as specialists to .;over areas such as earlychildhood development and special educational needs.

(2) Further and Higher Education Inspectorate (FHEI): The .HEIwill distance itself from the management of the NTTC and theLesotho Polytechnic institutions. Further, the FHEI would, asfunctional specialists, represent the ministry on discussions thatconcern the development of teacher education, development ofhigher education, etc. The Technical and Vocational Departmentwould form the basis of the FHEI, though inconsistencies in salarygrading between the TVD and school services may need to beeliminated. As the initial number of establishments under theFHEI's responsibility will be very small, the TV-D professionalstaff will suffice.

(3) Field Inspectoratet The field inspectorate w4.ll serve as amechanism for the inspection of primary and sect, lary schools andnon-formal education as well as for the discharge ofadmin-istrative functions that are more efficiently undertaken atthe local level, ultimately leading to improved accountability.it is essential that the training of officers is expedited so thatthey can take on their administrative an4 audit functions. Eachdistrict inspectorate will be managed by a Senior EducationOfficer (SEO) reporting directly to the CEO, EducationalManagement.

(b) In-Service Training and Staff DevelopmentThe COM will be supported by an in-service coordinator, operating fromthe ministry but in close cooperation with district SEOs. The districtinspectorate will serve as the principal vehicle for the disseminationof information about the curriculum, learning methods and othereducational concerns.

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ANNEX 4Page 3 of 9

Curriculum Services

The CEO, Curriculum Services will oversee the direct management ofNCDC, IMRC and LDTC. This will entail being responsible for the designof the national curriculum and individual syllabi, the commissioning anddesign of teaching materials, the organization of distance learning andliaison with examination bodies.

(a) NCDCThe NCDC would be responsible for syllabus design and the commissioningof appropriate support m&terials. Curricular priorities, however, willbe determined by the National Curriculum Committee (NCC). NCC wouldalso provide a mechanism for improved discussions on educational matterswith interested parties, such as the churches. It is further plannedthat the NCDC evaluation unit be strengthened. The testing unit wouldbe integrated into the ECOL and the production unit would be merged intothe IMR. The editorial team of the IMRC will move to the NCDC. Full-time posts would be reduced with a budget being retained to financeshort-term secondments as necessary. Each curriculum area would have amaximum of two permanent staff, with primary having priority both innumbers and in salary terms.

(b) IDMCThe IMRC would be responsible for the commissioning and production ofmaterials. Upgrading the printing and other production facilities willallow the IMRC to assume production of curriculum and other materials asa self-financing unit. If the ministry insists on free distribution ofmaterial, it would compensate the IMRC which in turn would advise theministry whenever it becomes financially impractical to have in-houseproduction. In such cases, IMRC would serve as the ministry's agent inthe establishment of printing contracts.

(c) LDTCThough the LDTC is defined in terms of its client groups, there ispotential in expanding its scope for fu:rther application. Distancelearning, currently viewed in relation with adult education, cancontribute to other fields such as in-service training for teachers andthe dissemination of technical and vocational education. To enable tbhLDTC to develop approaches relevant to client needs, close involvementwith the National Curriculum Committee would be required.

(d) ECOLTo guarantee an autonomous examination system while fostering acoordinated development of curriculum and assessment materials, ECOLwill be actively involved with the National Curriculum Committee andthat the registrar be administratively accountable to the CEO,Curriculum Services. Presently, nCOL is responsible only for theJunior Certificate, although it is actively involved in the developmentof a local "0" level and will soon become responsible for administeringthe PSLE.

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ANNEX 4Page 4 of 9

Suvnort Services

The responsibillties of the CEO, Support Services will includefinance and accounting, personnel services, school supplies, huildingand organization, school feeding, and office management.

(a) AccountsThe accounts section, directed at present by the Financial Controller,vill be expanded to effectively take control of public finances. Areview of existing working practices is essential to improved efficiencyand an organized system for task distribution is urgently required. Insome cases, it may be desirable to move certain quasi-accountingfunctions to the ministry sections most directly involved. It isfurther recommended that the audit function of the section bestrengthened by the appointment of an internal auditor and theestablishment of an internal audit group.

Replacement of outdated office furniture and purchase of modern filingcabinets is planned and would greatly improve the efficiency of thesection. Although computerization is not feasible in the short term, ata later date new technology could assist in the audit process. Thesection will proceed with the existing program of cost-center budgeting.Integral to this plan is the delegation of specific annual budgets toindividual units, including the disaggregation of the inspectoratebudget for the separate inspe.ctorate branches. The development of cost-center budgeting will require an expansion in the range of expenditurecodes and the introduction of separate codes for each cost center.Greater use should be made of a contingency warrants system tofacilitate the expedition of equipment and similar purchases.Expenditures relating to in-service training, transportation and expenseclaims would be released from the warrant system to allow quickerresponse from the ministry. The establishment of a contingency fundwill assist teachers suffering from contract delays.

The accounts section will play a greater role in controlling theministry's income through fees. Areas of doubt, such as the statutorybasls for tuition fees, would be resolved immediately. It will bestipulated that on clarification of the liabilities, all fees must beremitted to the ministry by the end of March of each year, and failureto comply would meet with disciplinary action. The accounts section isexpected to cooperate closely at the senior level with the StrategicPlanning Unit for the generation of new policy options and the analysisof the financial consequences of posslble courses of action.

(b) PersonnelThe personnel section will be headed by the Principal Personnel Officer(PPO) who will also assume the post of office manager. As at present,this section will deal with employees of the ministry who are engaged bythe Public Bervire Commission. The PPO will ascertain that futurestaffing structures do not involve the transfer of project funded staffto the ministry. It will ensure that vacancies do not remainunfulfilled for long. Variations in staffing structures are recommendedonly when appropriate and when there is sufficient control.

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ANNEX 4Page 5 of 9

An important personnel function, somewhat neglected at present, is thatof staff development. There will be provision for appropriate trainingas staff functions change rapidly. The staff will be informed inadvance about the changing demands of their jobs and be encouraged toupdate their skills. The establishment of a training budget. which mayalso be used to support the training of district officers, will oe vitalto this program. New hiring and promotion procedures will involvecompetitive interviews, job advertisements, completion of standardapplications, and merit based procedures.

(c) SuppliesThe ministry does not possess any overall schools supplies section, theclosest to such a section being the ad hoc body called the SchoolsSupplies Unit (SSU) which had been created under an aid project. Thisunit will be developed and its mandate extended to make it responsiblefor all school supplies. It will be merged administratively with thestores section and the new combined unit will be known as theprocurement section. This will be managed by a head of section,supported by a principal accountant and a stores manager, and thepresent aim of SSU to become self-financing will be maintained.

(d) School BuildingA new section will be built based on the structure of the TSRP. This,would be managed by a head of section, and the support staff of theexisting TSRP will be incorporated. The construction aspect of thisprogram would be the task of the school building section but the overallplanning responsibilities would lie with the Strategic Planning Unit.

(e) School FeedingResponsibility for school feeding is currently divided between theSchool Feeding Unit, which is part of the Inspectorate, and the newSchool Self-Reliance Project (SSRP), which is notionally accountable tothe planning section. Although there is a significant difference inapproach in that the SFU is concerned with food aid and the SSRP withagricultural education, there would be considerable advantage in aunified management structure. Therefore, the SFU will be disbanded,with the AEOs being reallocated to the mainstream inspectorate, and thetask of food audit will be undertaken as part of the normal inspectionprogram. The SSRP will become integrated with the remaining elements ofSFU in a new school feeding section and will have a comprehensivemanagement role in relation to school feeding matters.

Teachlin Services

The CEO, Teaching Services will be responsible for employment anddirection of the teaching profession, including professional relations,conditions of service, salaries, staffing standards, teacher supply,qualifications, pre-service and in-service training, and staffdevelopment.

° 96 -

ANNEX 4Page 6 of 9

Currently the Teaching Service Commission is not carry!ng out therole for which it was designed. The commission is seen as providing aforum in which interested parties z4n discuss issues withmilnistryofficials. Yet even where the 'SC has taken action, its effortshave received little publicity and are not widely recognized byteachers. Furthermore, the ministry has little direct control over theuse of the most substantial part of the public funds made available foreducational purposes; the current system apportions grants for teachers'salaries to school proprietors but not to indivldual establishments.The allocation of blocks of posts tends to encourage proprietors toallocate posts to areas where they are most easily filled rather than towhere there is greatest need.

The ministry will, therefore, take over the task of determiningstaffing levels for individual schools. It will remain possible forschool proprietors to make annual submissions for staff either on ablock or individual basis but the final determination of staff numberswill be made by the ministry and its staff in accordance with pre-determined criteria. The ministry would be advised by local inspectorswho would monitor staff use, drawing attention to ca3es of particularneed. It should be noted that this recomendation is entirelyconsistent with the suggestion made by the Education Secretaries, i.e.that staffing complements be fixed in accordance with national staifingratios to be determined bv the ministry. The relationship between theCommission and the ministry will be redefined. The commission will makerecommendations to the ministry on all matters c .._erning the operationof the teaching service and will oversee the employment of teachers soas to secure a degree of freedom from governmen. control. The post ofsecretary of the TSC will b'e merged with that of the CEO. TeachingServices who would act as secretary to the TSC as well as manage theteaching services section of the ministry.

It is appreciated that the proposals outlined will require someamendment of existing legislation and may not be capable of immediatefulfillment. In the short term progress will be made through closercooperation between the ministry and the TSC. The functions of thesection should be decentralized, including those of teachingappointments and promotions. Staff complement registers will becomputerized to ensure that vacancies are filled in time and problemsare rapidly identified and investigated by the local inspectorate.

C. SALAlY GRADINGS

The current grading structare has largely developed on an ad hocbasis and has been adversely affected by the incorporation of postsderived from special projects. The ensuing inconsistency is a potentialsource of justifiable staff discontent and tends to inhibit initiative.The lack of gaps in gradings makes it difficult to implement regradingswithout major knock-on effects. Perhaps, most important of all, thegradings of some key posts are insufficient to attract qualifiedcandidates. The proposals described here are designed to produce a

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ANNEX 4Page 7 of 9

coherent grading system founded on several principles that includeinternal consistency, accurate reflection of responsibility levels,grading adjustment to role changes, establishment -f clear careerpathways, encouragement of initiative and decision making, and provisionfor future grade changes without major structural disruptions.

Similar to other ministries, the post of principal secretary willbe at grade 18. Heads of service wili be graded 17, including thenominated deputy to the PS. Posts with major managerialresponsibilities for curriculum and related matters will be at grade 15.Section heads -Tithin the support service and posts with similarmanagerial responsibility will receive a grade 13. Subject specialistsin the NCDC and LDTC, and stage or subject inspectors will be at grade12. A case could be established for giving a grade of 13 to the NCDCsubject specialists and inspectors, in which event, revisions in otherposts may be necessary. Gradings of posts below 12 will remain ascurrent levels. Implementation of these proposals will produce acoherent and equitable structure with three main tiers of seniormana^ment at 18, 16/17, and 15. Middle management will be at grade 13and senior professional staff at 12 and/or 13. Consistency will bemaintained as future posts are created.

D. INSTITUTIONAL LINKS WITH THE MINISTRY

There is considerable divergence between existing legislation andpractice with respect to the relationship between the ministry and otherinstitutions. While a closer partnership between the ministry and theproviders of education is called fer, the recognition of the pre-eminence of the ministry is crucial for enforcing policy guidelines.

(a) School ProprietorsTraditionally, school proprietors, as owners of grounds and buildings,have played an important role as providers of education. As theirlimited ability to make additional capacity investments is recognized,their role in the management of the system needs clarification. It isplanned that they will be freed from existing managerialresponsibilities but that they will be afforded the opportunity to makerepresentations on roligious, cultural and curricular matters.

(b) School ManagementSchool managers, currently overseeing key management issues on behalf ofschool proprietors, will be phased out over a period of 2 to 3 years.Management will be left to the head teachers and the local inspectoratewith only consultative assistance from the School Committee,representative of proprietor, ministry and local community interests.The establishment of a management tier within 2ach school together withthe proposed strengthening of the local inspectorate will facilitateimproved monitoring and development at local levels.

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AJ: iX 4Page 8 of 9

tc) Parents and the Coa=nltyIn their capacity as fee payers, parents have collectively played asignificant role in taking initiatives on behalf of the school. It isnow important that their involvement be formalized through theestablisbment of consultative committees and parent-teacherassociations.

(d) Further snd Higher EducationThree tertiary educational institutions: National University of Lesotho,National Teachers' Training Center and the Lesotho Polytechnic, willassume the formal role as providers of FHE. This will involve removingall internal managerial responsibilities from the ministry,establishing autonomy for the three institutes, maintaining links withthe finance and personnel sections, consolidating the LerotholiTechnical Institute with other smaller establishments, establishing aFHE inspectorate using the existing TVD as a basis and developingsuitable technical and vocational courses. Further, there is need foran overview of post-school education and training, which will befulfilled by the Technical and Vocational Education Board.

E. MANAGOENT STYLE AND PROCEDURES

Issues that include the tendency of senior management to getinvolved with minor operational problems and the reluctance of middlemanagement to take decisions have led to ineffective management systemswithin the ministry.

(a) DelegationThe Principal Secretary will be assisted by a second tier of seniorlevel officers in the form of four CEOs and the strategic planning unit.It is imperative that substantia'. powers are clearly delegated to theseofficers and the practice of junior officers reporting directly to thePS is discouraged. The objectives of promoting initiative andindependent decision-making will be met by establishing the following:well-defined procedures for formal delegation of powers at all levels ofthe ministry, producing an easily revisable administrative procedureshandbook, establishing quality circles and encouraging senior managementto establish clear programs for target setting and performance review.

(b) Committee StructuresCoher64t decision-making meetings will be held regularly at all levelsof management. These will include the PS and his immediate colleagues,the CEOs and the heads of sections under thpir respective management,inspectors and other members of the inspectorate teams, tile NationalCurriculum Committee, and the Technical and Vocational Board.

(c) Wider CommunicationThe ministry has a need to communicate more regularly and effectivelywith its staff, teaching force and the public. This will be fulfilledby frequent briefings at the ministry and circuit or district levels,

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AMNEX 4Page 9 of 9

issuing sunnaries of policy statements, promoting its policies andprograms on Radio Lesotho, and regularizing field visitation by theministry.

G. IN CONCLUSION

The restructuring plans are designed to respond to the mAinproblems identified in the existing structure and will, whenimplemented, make the ministry more effective as a policy-making bodyand, more importantly, one that will be increasingly capable ofinfluencing the work of schools and collegei and securing improvementsin the quality of the service. It is perhaps this direct link to theeducational experiences of pupils and students that is most important,not only in itself but ir. giving to employees of the ministry a keenersense of purpose and thus both enhanced motivation and job-satisfaction.

The plans, therefore, lay stress on areas such as the developmentof the local inspectorate, which would help to fortify the relationshipbetween the ministry and schools, and on proposals which are designed toassist staff to improve in their performance.

Finally, the recom3endations have been designed to use mair.yresources that are already available. Past experiences with over-ambitious schemes have shown that it i3 better to relate proposals toattainable means. Certain arms of service, most notably the localinspectorate, could with great advantage be further strengthened; theplanned structure has been designed in such a way as to allow expansionwhen possible. Nevertheless, it is also important to recognize that.within a very constrained total budget, the proportion which will bedevoted to central administration is necessarily and properly limited.It is essential that the primary emphasis be placed on developing thequality of service at school level while ensuring that the ministry isorganized as to offer the necessary support.

LESOnloEDUCATION SECTOR DEVELOPMENT PROJECT

Project Cost Summary

MALOTI Usll X TotalX Foroign Be

Local Foroen . Total Lo"al Foreign Total Exchange Co.t

A. BASIC EDUCATION1. FACILITIES 18824 85632 54856 7680 14218 21742 6S 342. CUlt A INSTRUCT MATS. 2112 551 2"6 645 221 1065 21 23. ASSESSMENT 1708 8142 4845 681 1267 1938 eS 84. PROFESSIONAL SUPPORT 4706 1064 5769 1882 426 2080 19 4S. EFFICIENCT 288 492 76 107 197 804 es 06. TEAOUR RECRUITMET 21750 0 21750 0700 0 8700 0 13

Sub-Total 49862 40781 90144 19745 1681 8607 45 56B. TEACOEI TRAINN

1. NTTC STRM TE/UPUT 5787 9788 15520 2816 398 5208 63 102. PRE- AM IN SERVICE TANS 6401 2246 7647 2160 8 8059 29 5

Sub-Tots 11183 11979 23167 4475 4792 9267 52 14C. TECH & - , iPUATION

1. SMLTY & COST EFFECTVNS 1400 2195 8969 560 878 1488 6l 22. SKIUS CERT/INDUST IRC 1808 1S 2673 528 628 1149 64 28. POIUCY D&tELOPT 861 881 662 140 182 278 49 0

Sub-Totel 8059 4090 7160 1224 1686 2660 57 40. NATIONAL Ul OF LESOTHO

1. quALIy COST CONTAIJOIT 1193 5442 6a6 477 2177 2654 32 4E. SECTORAL MANAGEMENT

1. REORGAZATION OF MOE 9781 6811 18641 892 2724 6616 41 102. DECENTRALIZATION OF MOE 2917 5787 804 1167 216 8S2 66 68. LOCAL LEVEL SCHOOL MLNT 2267 719 2976 903 288 l190 24 24. ONITORING A EVALUATION 1048 8691 4738 417 1476 1898 78 8

Sub-Tot l 15947 17008 82955 6879 6083 13162 S2 20F. PROJECT PREPARATION FAC. 1006 1184 2140 402 464 856 58 1

Total BASELINE COSTS 81756 80486 162191 82702 M74 64876 50 100Physical Contingenclis U392 6870 10262 1857 2746 4105 67 6Price Contlnnclon 86394 80516 84010 2849 2746 5596 49 9

Total PROJECTS COSTS 118648 1171 28 646 _ 690 8766 74576 51 115

V! n Sca *d by 1000.0 - 6/6/1991 20:16

ISOTMEDUCATION SECTOR DEVELOPMN PROJECTSuary Account by Project Component

MALOTI('COO)

NTTC PRE- AND qqALITYCUJRR A PROFESSI TEACHER STRENGTH IN A COST SKILLS POLICY

FACILITI NR ASSESSME ONAL EFFICIEN RECRUITM EN/OUTPU SERVICE EFFECTVN CERTIND DEVEIIES HATS. NT SUPPORT CT ENT T TRNO S UST 7R0 ofT

I. IKVEST1T COSTS

A. CIVIL WORS - PRI Y 38909 0 0 0 0 0 0 0 0 0 0B. O1ER CIVD WOIRKS 0 0 376 0 0 0 12049 108 20 925 0C. EqUIPMT 0 24 332 0 0 0 189 20 8s S9 0D. FURNNE 12229 0 5 0 0 0 1095 0 0 100 0E. VATERIALS/MaPPUES/lKS 0 790 237 0 260 163 603 us 25 0F. TECHNICAL ASSISTANCE1. LOCAL CONSULTANTS I800 0 18S 0 0 0 1095 o10 151 600 02. EXPATRIATE CONSULTANTS 0 260 2025 156 260 0 626 0 775 0 0

Sub-total 16O6 250 2160 1S5 260 0 1720 810 926 0O.VEHICLES 0 16 76 0 0 0 0 170 0 0 0

. SUDIES RESEARCH 10 0 320 0 0 0 0 20 52 76 482 __. TRAIND AND FELLOHIPS 01. IN-CONTRY TRAININ 0 0 39 117 0 0 D) 0 0 02. EXERNAL TRAIING 0 0 800 0 0 0 76 112S 440 260 0

Sub-toal 0 0 339 117 0 0 is 1125 440 260 0J. UETINGSl/U OPS 0 1866 430 2638 210 0 0 967 821 2S0K. PER DIEMS ONLY 0 0 0 2625 S0 0 0 236 24 0 0L. PROJECT PREPARATION FAC. 0 0 0 0 0 0 0 0 0 0 0

Total INIESTENT COSTS b2894 2582 4278 5657 760 0 15230 4019 3199 2525 682

II. RECURRENT COSTS

A. LOC SALRIES 0 0 532 232 0 21?S0 240 300 378 343 0B. PETION & MAINDTENAN1. BUIIDIM 5AN S45 0 0 0 0 0 0 0 0 0 02. E 0PENTOCA 917 0 0 0 0 0 0 0 13 0 0S. VEHICLE OAV 0 81 40 0 0 0 0 eS 0 0 0

Sub-total 1462 e1 40 0 0 0 0 68 1i 0 0C. SUPUES/ATERIALS 0 0 0 0 0 0 0 0 0 0 °D. SERVICES/ENTS 0 0 0 0 0 0 0 0 0 0 O

oS.Total RECUSET COSTS 1462 81 57 2 282 0 21750 240 396 0 O

Total BASELI E COSTS 6436 2663 4845 0. -9 760 21750 15520 7847 8a95 2873 62 0 Physical Cotingaciz 5292 178 253 146 48 0 1493 196 199 176 *4 "^

Price Cootligeoci.. 24201 799 1973 2204 UtI 10745 4695 2396 1414 110? 131 c

Total PROJECT COSTS M3649 8641 7077 8119 99 32496 2170 108 5209 4166 o97

Taxes 7289 0 60 0 0 0 203 17 3 14U 0Foreign Excha 54992 72 4626 1489 593 0 13721 a243 3169 2131 416

LEOTNO- uun RE EUmw PrOJECT

Smwu Accouat yr P0 ojet Cempemm

(11000)

MIp TY ^LOCAL hONITI Physical Pricea COST RIJAn. iz%tmA L ,Y9 NO & PROJECT Coeti ga.cI.l Conti ml1se

CONTAIN ZATION LZATION SOIOOL EVALUATI PREPARTT OF IOE OF UK MVNT ON ION FAC. Total Amsunt I Asuat

I. INES1UW COSTS

A. CIV nIt - PRtIMARY 0 0 0 0 0 88909 10 39 45 17527B. OTH CIIL 6HKS 2451 0 40J 0 0 0 20016 10 2001 24 4717C. EJIr 219 0 K1 0 275 0 36 10 809 21 6410. tENtE 10 0 406 0 0 0 1347 10 188 41 anE. MATERIALi/SUPPLIESMUKS 1126 0 362 0 157 0 86 10 WY 6 1486F. TECHNICAL AImICE

1. LOCAL CONILTANTS 0 420 0 0 275 0 g1 a 184 54 17f*2. EXPATRIATE CONSLTANT 675 7OZ 0 0 6593 0 16425 5 7'1 so 96

Sub-total 675 7490 0 0 66 0 20618 4 906 so M4O. VEOIaLE 0 0 270 140 0 0 617 S 41 20 IS0H. STUDIES & UESEROI 260 0 0 0 0 0 1299 5 6F 30 M80t. iANN AN FELLOIPS1. DI-ClUII 7UTUANI 0 260 0 200 61 C 66 5 3 Ps 2# o2. EXTERNAL TAIDI 1625 400 0 0 472 0 4567 5 2a9 40 Is16

Sub-totl 1625 050 0 200 488 0 55 5 2" 3 254J. 1EETDIN OS1 S 0 0 0 2600 0 0 9196 5 460 a a857K. PERDIE ONLY 0 0 0 6 0 0 l0SC 0 0 8 1141L. PROJECT PRARAT FAC. 0 0 0 a 0 2140 240 0 0 9 1N

Total INVEST COS 62 8146 6956 292 478 2140 122066 6 9717 n 45164

II. REClIEN COSTS

A. LOCAL SUJIES 0 7066 600 0 0 0 867 0 0 47 l80B. OPERATION A MAINTENANCE

1. BUILDIN OGI 274 260 2040 0 0 0 3109 10 811 48 1822. E4IPWN TO* 0 0 0 0 0 0 93t 10 94 ac 610S. VEHICLE OIM 0 400 106 56 0 0 75 10 76 46 84

Sub-total 274 660 214 56 0 0 4797 10 490 46 2206C. SWPLUESE/MTEALS 0 300 0 0 0 0 tOO 10 30 48 129 .D. SER*ICES/RENT3 0 0 0 0 N0 10 t8 42 1In

Totl RECURENT COSTS 274 6396 2748 6 S 0 0 40125 1 54 47 1#647

Total OASELDE COSTS 6686 16S41 6704 2976 47U 2140 162191 6 10262 39 64010 oPhysical Contingencols 56 517 797 14 244 0 10262Price CoetiegaI .. 1699 6742 1929 1171 1986 156 64010 6 356F

Total PROJECT COSTS 6871 23601 11480 4295 M9s9 2M 234604 6 ism2 27 640M1

Taxes 356 0 590 0 0 0 10447 9 960Foro1gn Exchang 7406 9004 7570 1032 5416 125 117021 0 9265

LCSOlHOEDuATION SECTOR DEVEPurT PROJECT

Sumary Accounts by Year

Total* Includtng Contlng.nele Total. Including ContingoacI.IALOTI USS

9i/92 s2/9s 9/94 94/95 s6/98 Totl 91/92 92/93 93/94 94/96 S6/96 TotalI. INVESTM r COS

A. CIL M S - PRIMAY 6996 9680 14162 17798 12492 6082? 2204 8409 4638 5210 382 16602B. OER CIVIL MMS 7900 10741 8042 0 0 2673 223 8706 2577 0 0 20C. ESJIPUET 1881 1442 786 14 16 4038 678 407 286 4 4 1415D. FURNIIME 84" 4143 4471 4187 4680 20917 1276 1420 1432 1211 12S1 6602E. MATEIALS/SWUPLIES/B14S 1264 1486 1027 96S 1070 5802 465 518 829 280 285 182F. TEOHICAL ASSISTANCE1. LOCAL CONSULTANTS 1417 1674 1084 1814 1401 6979 S21 577 847 8s5 898 22282. XWAlRIATE CONSILTANTS 4084 4107 4601 4422 4904 22159 1488 1417 1603 1294 1806 7006

Sub-Total 5451 5791 775 5786 6s 2188 2004 1004 1850 1679 1706 92340. VDUCLES 276 742 0 0 0 1019 101 256 0 0 0 85H. STUDIES A RESEACH 560 458 286 202 802 1754 206 15B 75 59 81 5I. TRADINI AND FEOUA S

1. 91-UT TRA1D0 211 190 157 176 202 08 76 66 50 52 54 2992. EXTERNAL TRAINDNG 645 1601 1600 1280 1209 664 28? 563 6o0 860 88 2008_ ~~~~~~~~wSub-Total o66 1792 2047 1407 1470 7572 815 618 eS6 412 392 2398

J. MEETNIS/O! JHOPS 1967 2046 2742 2688 2881 18165 719 1016 679 787 7S6 4168K. PER DIE ONLY 019. "4 872 887 1006 4157 227 287 279 260 208 1802L. PROJECT FWEPARATION FAC. 282 0 0 0 0 2828 856 0 0 0 0 656Total DNrESTUENT COSTS 32600 4018S 40109 8822 0271 176048 11970 18664 12851 9901 s078 SO61

II. RECURRENT COSTS

A. LOCAL SALARIES 8215 6148 9808 13696 18265 51027 1182 2119 3145 3980 4u71 152968. OPERATION A MAINENC1. MrtADI CAN 675 049 950 1076 1221 4771 243 293 806 51s 826 14862. EIPWT OUI 78 168 279 419 693 1538 29 68 89 128 156 457. VEHICLE oA 116 219 246 278 $16 1178 43 76 70 81 4 82

Sb-TotaI 6e 1287 1475 1773 2129 7488 819 427 478 519 56 2806C. SUPLIE/MATERIALS 73 s0 90 101 115 459 27 2 29 SO 31 144D. SERVICES/RENTS U4 96 108 122 16 547 81 88 84 86 87 171mTotal RECURRENT COSTS 4241 7566 11480 15592 20647 59616 1659 2607 8678 4604 5507 17916Total PROJECT COST 86801 47741 61569 49414 60918 2864U6 130 16471 150 14466 185O 745760

Valu%9 Scaled by 1000.0 5/6/1091 .20:05

f

LESOTHOEUCATION SECTOR DEVELOPMENT PROJECT

MALOTI

Suary Accounto by Year

8lc Coes Foroign Exchange

91/92 92/98 93/94 94/95 9t96 Tote I X Amount

I. INVESTMBIT COSTS

A. CIVIL RKS - PRIb 499S 7396 9486 10635 6518 38909 60 23346B. OTHER CIVIL CRKS 6594 8036 s886 0 0 20016 6s 13009C. EquJIPM 1504 1075 493 8 8 3088 100 30880. FURNI1URE 2867 8098 2994 2449 2445 13847 90 12463E. MATERIALS/SUPLIES/OKS 1044 l11a 687 565 558 8968 80 8177F. TEORNICAL ASSISTANC.

1. LOCAL CONSULTANTS 1280 1841 772 e5 860 5093 0 02. EXPATRIATE CONSULTNTS 8498 8216 829 2741 2679 16426 80 12340

Sub-tot l 47M 4SS7 4063 SS92 8529 20518 60 123400. VEHICLES 288 680 0 0 0 817 100 817H. STUDIES & RESEARCH 486 859 16s 125 166 1299 67 667I. TRAININ AUND FELLOWSHIPS

1. DN-COUNTRY TRAINING 188 150 110 110 110 se8 19 i2n2. EXTERNAL TRAINDIN 565 1251 1826 762 98S 4687 100 4587

Sub-total 742 1401 1436 872 808 525S 90 4715J. NEETING/UUKSHOS 1786 2824 1924 1666 156" 9196 18 1676K. PER DIEMS ONLY 677 042 642 677 677 8016 13 894 8"L. PROJECT PREPARATION FAC. 2140 0 o 0 0 2140 S5 1184

Total INVESTMENT COSTS 27686 80574 2m7 20a88 16145 122068 68 77026

II. RECIfEl4T COSTS

V. LOCAL SALARIES 8015 6101 7226 8es0 10475 84867 0 0N. OPERATIN A MAINTENANCE

1. BUILDING Ohm 563 6837 87 637 637 3109 60 18s62. EWJIPMENT OAE 65 126 187 248 809 935 80 746S. YEHICLE O&M 96 a64 164 164 164 763 70 527

Sub-total 728 927 9M8 1049 1110 4797 65 31390. SUPPLIES/MATERIALS 6o 6o so 60 60 800 90 270P. SERVICES/RENTS 72 72 72 72 72 860 0 0

Totol RECURENT COSTS 870 6159 834S 10081 11718 40123 8 8409

Total BASELINE COSTS 81656 a8734 86M21 80418 27862 182191 60 8043S 85Physical Contingenci.s 2168 2620 2384 1749 1841 10262 67 6870 t ePrice Coot1ngencls 8078 8388 1884 17248 21715 64010 47 80316

Total PROJECT COSTS 86801 47741 51589 49414 50918 286464 S0 117621

Taxes 1678 2474 2M66 21U8 1499 10447 0 0Foreign Exchange 21844 26624 26678 22111 20884 117621 100 117621

Value Scaled by 1000.0 /6/11991 20:06

LESOTnOEUCATION SECTOR DEVELOP"ENT PROJECT

Su_ry AccounUt Cost Sumry

MALOTI UsS x Total- - - -- --------- X Foreign Base

Local Foreign Total Local Foreign Totel Exchange Coat

I. DNVESTMENT COSTS

A. CIVIL WMORS - PRIMARY IS683 28346 38909 6225 9338 16683 s0 24B. OTHER CIVIL WORKS 7005 18009 20015 2602 5204 8006 05 12C. EquIPMEKT 0 3088 8088 0 1235 1236 100 20. RURNITURE 1885 12463 18847 564 4985 6539 90 9E. MATERIALS/SUPPUES/8KS 791 3177 aso 816 1271 1687 80 2F. TEOCNICAL ASSISTANCE1. LOCAL CONSULTANTS 509 0 5093 2087 0 2037 0 a2. EXPATRIATE CONSULTANTS 8085 12840 16426 1234 4988 8170 80 10

Sub-Total 8176 12840 20S18 8271 4988 8207 Ct 18G.VEHICLES 0 617 817 0 827 827 1H. S1UIES & RESEARCH 482 867 1299 178 847 520 1I. TRAIN AND FELLOUSIHIPS1. IN-COUNTRY TRAININ 540 128 68 216 51 267 1i 02. EXTERNAL TRAININ 0 4537 4687 0 1885 1686 100 8

Sub-Total 540 4716 52C5 216 1886 2102 90 8J. IEE TR PS 7620 1676 9196 8008 070 U88 18 6 K. PER DIENS ONLY 222 894 8o01 1049 167 1206 18 2 usL. PROJECT PREPARATION FAC. l006 1184 2140 402 454 856 c8 1Total INVESTMENT COSTS 45041 77026 122068 18017 08011 48827 68 76II. RECURRENT COSTS

A. LOCAL SALARIES 8U47 0 84067 *1387 0 18867 0 21S. OPERATION A MAINTENANC1. BUIDING OhM 1243 1885 8109 497 746 1248 60 22. EqUIMENT CAN 1S9 740 985 76 298 874 80 18. VECLE OhM 226 b27 768 g0 211 801 70 0

Sub-Total 1658 8189 4797 668 1265 1919 65 aC. SWPPLIES/MATERIALS 80 270 800 12 108 120 90 00. SERVICES/RENTS 860 0 8B0 144 0 144 0 0Tot.l RECtURENT COSTS B0716 8409 40128 14686 1868 16049 8 25Total BASELINE COSTS 81756 80486 162191 82702 82174 64876 SO 100Physical Contingencies 8392 6870 10262 1857 2748 410S 67 8Price Contingences 838694 80316 64010 ?S49 2746 5695 49 9 X______ :________ ____ GUTotal PROJECTS COSTS 116843 117021 286464 88908 87608 74676 61 115 o

Valews Scaled by 1000.0 - 5/6/1991 20:07

LESOThOEDUCATION SECTOR DEVELOPMENT PROJECT

Protect. Components by Y ar

Totals Including Contingncioe Totals Including ContingnclosMALOTI

91/92 92/93 98/94 94/95 9S/90 Total 91/92 92/93 93/94 94/96 95/96 TotalA. BASIC EDUCATIN

1. FACILITIES 9527 18972 18717 28069 18674 88849 8602 4821 5997 6760 4964 260242. CURR & NSTRUCT MATS. 801 1095 925 S88 261 8641 295 878 296 158 75 1201a. ASSESSMENT 849 1705 1324 1498 1701 7077 812 588 424 489 464 22174. PROFESSIONAL SUPPOT 1462 1894 1611 1757 1994 8119 S88 481 484 514 582 2649. EFFICIENCY 593 163 184 0 0 989 210 So 69 0 0 888S. TEACHER RECRUITMENT 146" 8493 590 8910 12641 82495 609 1205 1892 2606 8871 9645Sub-Ttabl 14776 21822 28506 57682 86191 186119 6438 7629 9158 10409 9388 419069B. lEACHO IRATNIN

1. NTMt SSRENOeeEN/OUTP9JT 596 10910 9867 178 156 21706 220 t874 8161 62 42 72892. PRE- AD IN SERVCETRNO 1420 2429 2458 2078 2858 10786 522 $86 766 606 629 88Sub-Total 2018 18889 12820 2255 2514 82446 742 4602 8947 660 670 10622C. TECH A VOC UCATION

1. QqLM A COST EPECIVNS 691 1226 1179 955 11s 5209 264 428 878 280 809 1648 2. SKlLS CERT/INDUST Tl B6 2108 822 777 66 41S6 82 727 108 227 280 1820 °8. POLICY DEVELM 888 238 114 97 110 897 124 82 87 28 29 80 lSub-Total 1115 8572 1615 12 2180 10262 410 1282 517 58S s58 88D. NATIONAL lil OF LESOTHO

1. UALI1Y A COST CONTAINM 4796 972 908 1028 1166 8871 1768 885 2 301 811 8002E. SECTORAL MAGEME

1. REORANIZATION OF HOE M808 4785 4687 5170 6178 28801 1116 l64 1502 1514 16" 74112. DECENITRALIZATION OF MOE 7198 1151 902 1021 1169 11480 264e 897 289 299 309 8940. LCAL LEVELSCHOOL UYT 609 981 8465 8 1016 4295 224 821 271 202 271 18494. MONITORINO A EVALUATION 928 1219 1747 1465 1570 .918 239 420 560 428 419 2164Sub-Total 1176 80o8 8161 8640 9817 46489 4826 2772 2621 2500 2646 14864F. PROJECT PREPARATION FAC. 2828 0 0 0 0 2828 56S 0 0 0 0 a6sTotal PROJECTS COSTS 8680l 47741 61589 49414 50918 286464 18580 16471 16650 14486 1858 74676

ValIm Scaled by 1000.0 5/0/1991 20:07

'urn

LESOlHOECATION SECTOR DEVELOPMENT PROJECT

Project Compoeenta by Y"r

Bae Coet Total

91/92 92/93 98/94 94/95 95/96 MALOTI US$

A. BASIC NUATION1. FACILITIES 7984 10463 12560 13670 9709 54356 217422. OUR & INSTRUCT MATS. 696 846 e63 831 161 2668 10653. ASSESSUENT 722 1316 936 936 986 4846 19s64. PROFESSIONAL SUPPORT 1321 1127 1067 1116 1116 5769 2a80S. EFFICIENCY 5O0 18o 1SO 0 0 70 3046. TEACHER RECRUITMENT 1450 2900 4850 s56 7260 21750 6700

Sub-total 12628 1603 19702 21864 19163 90144 3607B. TEACOt 1UADiDIN

1. NTTC STRETMEN/OUTPfUT 514 8182 6627 III s6 16620 62062. PRE- AN IN SERVICE lRNO 1299 1944 1756 1825 1825 7647 3069Sub-total 1618 10126 68 1486 1410 28167 9267C. TECH A WC EUCATIOIN

1. N)ALITV A COST EPECTNS 569 940 625 596 698 8595 14U32. SKILS CENT/IUST O 75 1575 231 501 491 2s73 11498. POICY DEVELOPkI 296 167 6o 60 so 682 27a

Sub-total 959 2711 1136 1157 1167 71n0 26000. $MTIONAL t31W OF LESOTHO1. iULITY A COST CONTAIW 4016 742 e26 625 026 6636 2654E. SECTORAL MANAGEMT1. REORGNIZATON OF WOE 2687 77o 3351 8276 3461 16541 ee162. DECENRALIZATION OF MOE 5974 s66 615 616 61 8704 84628. LOCAL LEVEL SCHOOL MONT 540 784 594 554 564 2976 11904. MONITORING A EVALUATION 03 967 1216 901 867 4783 169S

Sub-ttel 10004 682 6776 6846 547 32965 13182F. PROJECT PREPARATION FAC. 2140 0 0 0 0 2140 666

Total BASELDIE COSTS 81656 67S84 35821 30416 27932 162191 6487Physical Coatinga,c1e 2108 2620 2384 1749 1341 10262 4106Price Contlngncles 3076 6366 18564 17248 21715 64010 6596

Total PROJECT COSTS Z8601 4741 56169 49414 50918 286464 74570

Tex. 1678 2474 2665 21U6 1499 10447 8346Foreign Exchang 21644 26624 26678 22111 20J84 117621 8768e

Valm Scaled by 1000.0 6/8/191 20:06 II

- 108 -

Annex 6Page 1 of 6

LESOTHO EDUCATION DEVELOPMENT PROJECTTECHNICAL ASSISTANCE

I * BASIC EDUCATION

A. Curriculum and Instructional Materials Development

Curriculum Specialist (24 staff months) (see para. 4.07)

A curriculum specialist will be appointed to NCDC to assist the NationalCurriculum Committee (NCC) in the revision of policy guidelines and to provideguidance for the subsequent development of curriculum materiaJs within NCDC. Theconsultant will provide essential background information for the development ofnational curriculum priorities and compile statistics on current time use inprimary schools, as well as provide a summary of time-tabling practices underother educational systems. The consultant will also play a key role in helpingthe NCC determine the optimal assignment of class periods to individual subjectareas and develop timetables for different school-size categories. S/he willwork closely with the subject panels in identifying areas where existingmaterials may need to be modified and will liaise with the Evaluation Unit withinNCDC in trial-testing these materials and in making any further modifications.

Books and Educational Supplies Consultant(s) (8 staff months) (see para. 4.07)

As part of its efforts to improve the quality and efficiency of primary educationin Lesotho, the MOE wishes to review current procedures for the production anddistribution of instructional materials and textbooks. To this end, theconsultant(s) will work with the School Supplies Unit (SSU) during the first fouryears of the plan on the design of managemeint and financial systems, facilitatethe inputting of stock control data on the computer, help establish a levyformula, and explore the need for the Unit to have autonomous legal standingwithin the sector. The consultant(s), who will spend two months a year duringthe first four years on these tasks, will also examine the role and staffingneeds of the SSU vis a vis the proposed centralized procurement and suppliesoperation. In addition, the consultant(s) will work with the InstructionalMaterials Resource Center (IMRC) to provide a detailed financial andorganizational analysis as a basis for discussions on the Center's future role.

B. Student Assessment (see paras. 4.10 and 4.11)

The Primary School Leaving Examination (PSLE), currently administered by theMinistry of Education, will be transferred to the Examination Council of Lesotho(ECOL) by the end of the Fifth Five-Year Education Sector Plan. In addition,the localized Cambridge Overseas Certificate Examination (COSC) will becompletely administered by ECOL by the final plan year. Two consultants will behired during the last three years of the plan to ensure a smooth transfer:

- 109 -

Annex 6Page 2 of 6

Examination Officer (36 staff months)

To enable ECOL to adequately plan for the transfer of these exams, given toapproximately 30,000 students each year, the consultant will work closely withthe Registrar and develop annual examination schedules, train examiners andestablish guidelines to ensure the validity of items in the exams; consult withthe principal parties involved in the examinations (NCDC, teachers'representatives, proprietors); and review and adapt procedures for registration,printing, moderating and scoring. The consultant will help develop and implementa system for providing feedback on exam performan to schools, the MOE, andothers, and work closely with and train a local examination officer during thethird year of the plan.

Measurement Officer (36 staff months)

To enable ECOL to cope with the substantial increase in candidate numbers and toextend the range, format, and quality of its examinations, the Measurementofficer will work closely with the Examination Officer to develop a practicalresearch program to contribute to the quality of the exams; conduct studies ofexamination data focusing on the psychometric properties of the exams; trainexamination setters, develop and pre-test scoring procedures for continuousassessment and practical exams, and install a data-entry system for registeringcandidates, recording and reporting results. In addition, the consultant willprovide data for reports of examination results (which are provided to schools,MOE and others) and contribute to the writing of these reports. Finally, s/hewill work closely with and train a local measurement officer during the finalyear of the plan.

C. Efficiency Improvements

IEC Specialist (8 staff months) (see para. 4.13)

In order to reduce and ultimately eliminate the considerable age variation withinprimary, attributable to substantial differences in age of entry and high ratesof pupil dropout and repetition, the Government has decided to limit entry toStandard 1 to pupils no younger than 6 and no older than 8 years of age, and tolimit repetition to a total of 2 years during a pupil's years in primary school.An IEC specialist will be employed for eight months during the first plan yearto help design a public awareness campaign to inform parents, school proprietors,and the community as a whole of the proposed changes and their long-termbenefits. The specislist will assist in the design and pre-testing of allcampaign materials to ensure their effectiveness and applicability, determine thetarget audiences and the most effective media for reaching them, and document theresponse of the community to the messages, making any modifications as necessary.The awareness campaign will use all appropriate media including, inter alia,posters, notices in newspapers, radio discussions and advertising, travellingtheater troupes, and church announcements.

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Annex 6Page 3 of 6

II. TE&CNK TRAINGs RAISING STAIDARDS AND OUTPUT

A. NTTC Institution Strengthening and Expanding Output

Since its creation, KTTC has been a department of the HOE. This will changeduring 1991, when the institution will be granted autonomous status as a collegeof education. To this end, long- and short-term consultants will be hired toassist in the following areast

Management Adviser(s) (24 staff months) (see para. 4.16)

The management adviser will assist in the transition of NTTC from its presentstatus to an autonomous college of higher education. The adviser will assist inthe development of a system of governance for the internal administration andmanagement of the college, the establishment of a system of financial accounting,the creation of appropriate conditions of service for the teaching staff, and thedevelopment of a system of equitable appointments and promotions for teaching andnon-teaching staff. In the college's gradual efforts to upgrade its currentcertificate program to the diploma level, the adviser will assist in identifyingany modifications and additions to the course curriculum and in the program asa whole to make this transition possible, including the oversight of theupgrading of administrative and teaching positions within NTTC.

B. Strengthening Primary Teacher Pre- and In-Service Training Programs (see para.4.17)

The existing Lesotho In-service Education for Teachers (LIET) Program is designedto upgrade the general educational levels and teaching competencies ofuncertified primary school teachers. This program has an annual output ofteachers about double that from the regular NTTC three-year program and is acritical element of the Ministry's plan to reduce the primary pupil-teacher ratioto 50:1.

In-Service Training Adviser (60 staff months)

The adviser, recruited locally, will help review the extent to which the currentmix of practical and theoretical courses meets LIET participant needs. Allgeneral education, theoretical and practical courses will be evaluated, reviewedand strengthened, and LIET participants will receive instruction in how todevelop pedagogically sound curriculum materials from limited resources. Inaddition, the training adviser will coordinate the supervision of field visitsto ensure the transfer of teaching skills to the schools and will identifyspecific areas of weakness in the teaching capabilities of LIET trainees. Whensuch areas have been identified, the adviser will expand/modify curricula anddevelop courses which address the specific deficiencies. Throughout this planperiod, the training adviser will work closely with the materials adviser toensure the compatibility of instructional materials with proposedchanges/modifications. Finally, the adviser will write the terms of referenceand assist in the implementation of the independent evaluation of the program todetermine its effectiveness.

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Annex 6Page 4 of 6

Training Materials Specialist (12 staff months)

During the first two years of the plan, a curriculum materials specialist, alsprecruited locally, will help determine the suitability of instructional materialswhile working closely with the in-service training adviser. The materialsspecialist wlll update existing materials to accommodate any course changes andwill design, pre-test and produce materials for any additional courses. Anattempt will be made to engage the trainees' interest by designing suitable andcreative teaching materials, with a view to providing the trainees with toolsthat they can easily transfer to the classroom. The pedagogical tools developedshould go beyond the *traditional' textbook to include instxuctional materialssuch as workbooks, handouts with graphics, (even audio-visual materials wherefeasible) and print materials to complement existing distance education programs.

III.* STENGTS ENING TECHNICAL AND VOCATIONAL EDUCATION

A. Enhancing Quality and Cost Effectiveness

TVE Curriculum Development Adviser (31 staff months) (see para. 4.16)

The Government attaches a high priority to technical and vocational education(TVE), viewing it as an important input into the creation of local employmentopportunities. The TVE Curriculum Development Adviser(s) will work for sixmonths of every plan year to develop programs in the following four areas:carpentry/joinery, brickwork, electricity, and auto mechanics. Following thedevelopment of course materials, the adviser will oversee the pretesting,modification, publication and distribution of the materials as needed. S/he willoffer workshops to instructors in TVE institutions and will establish criteriafor student assessment and develop written and performance tests. In addition,the adviser will lisise with industry to identify possible entry pointq for TVEgraduates, will ast%ist them iL matching their areas of study with industryrequirements, and will participate in the joint MOE/industry subject panels.Finally, the adviser will explore possibilities for apprenticeships or other co-operative attachments whereby students at TVE institutions can combine course-work with practical on-the-job training.

B. Skills Certification/Trade Testing

Adviser for Skills Certification/Trade Testing Center (24 staff months) (seepara. 4.18)

As has been discussed in the SAR, a skills certification/trade testing centerwill be established to provide pre-service training opportunities for thedevelopment of skilled labor. An adviser will be hired for two years under thecurrent project to oversee the establishment of the center. He will assist inthe hiring and training of staff, and will work closely with the MOE and withrepresentatives of industry to ensure that the center will provide appropriatetesting opportunities and levels of training to compensate for skilldeficiencies. One of the aspects of this job will involve the development of newtrade tests to certify the skill levels of Basotho migrant miners returning fromRSA and providing skill euhancement to ensure this labor force can be gainfullyemployed in Lesotho. In addition, the adviser will assist in the creation ofcertification standards which would be acceptable to employers in the private

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Annex 6Page 5 of 6

sector and which would be adhered to by the center. His other tasks will includethe oversight of the financial feasibility study which will be conducted duringthe life of the pro4ect, starting with the creation of a baseline databaseagainst which program impact can be measured.

IV. NATIONAL UNIVERSITY OF LESOTHO (NUL): QDALITY IMPROVEENTS AND COST CONTAINMENT(see para. 4.21)

A. Quality Enhancement and Cost Containment

Economic considerations dictate that the Government's subvention to NUL cannotbe increased substantially during the plan period. Thus the university will berequired to achieve internal savings and/or generate revenue from its ownactivities while also enhancing the academic quality of NUL programs. To achievethe goals of increased efficiency, effectiveness and cost-containment, thefollowing consultants will be hired:

Higher Fducation/Efficiency Specialist (12 staff months)

The consultant will assist in the identification of specific cost-containmentmeasures (as has been mentioned in para. 3.26 of the SAR), and in their effectiveimplementation. This will include assisting the NUL in the reduction of non-teaching overheads and in the streamlining of course areas in order to offer morecoherent areas of concentration to the students. S/he will also identify any newprospects for cost-saving as well as for potential reallocation of funds withinthe items in the current budget. In addition, the specialist will pursue anyrevenue-generating possibilities for the university including consulting andresearch opportunities, in consultation with the research and staff developmentadviser. Research and Staff Development Adviser (30 staff months)

In an attempt to improve the quality of the academic programs, the capacity ofthe teaching staff to meet the growing research needs of the country, and toaccommodate the changes in cu.;riculum and teaching envisaged for the university,the project provides support for a research and staff development adviser. Theadviser will spend six months of every plan year assisting the NUL in the designof a research agenda and will play a key role in administering and evaluatingresearch proposals submitted for staff funding by NWL faculty, including helpingNUL to develop a systematic procedure for awarding training fellowships andresearch grants. In addition, the adviser will maintain close contact with thefaculty, making him/herself available to the faculty as a source of informationand identifying relevant training opportunities for them that will contribute toimprovements in the quality of instruction at the NUL.

V. STRENGTUNING SECTORAL MANAGEMENT

A. Monitoring and Evaluation (see para. 4.27)

The Ministry, specifically the Planning Unit, will be required to play majorcoordinating, monitoring and evaluation roles during the course of the plan.Technical assistance will be provided by the following consultants to assist withdata collection and to develop competencies related to policy making andplanning.

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Annex 6Page 6 of 6

EMIS/Statistics Adviser (60 staff months)

An EMIS/statistics adviser will be hired to assist in the establishment of aneducation management information system. S/he will assist in tracking primarylevel pupil achievement and will ensure that the EMIS will be used to linknational priorities to data collection. -he adviser's tasks will includeensuring that appropriate hardware and software are purchased and tested, thatefficient and timely data collection procedures are established, and that theseprocedures and computer programs are adequately pre-tested. The adviser willassist the Planning/Statistics Unit to provide reports broken down by district,proprietor and school or any other relevant category, and will help conduct trendanalyses on the effects of Government policies, such as those on entry, promotionand retention. The adviser will assist the Statistics Unit in the collection andreporting of general education data including, but not limitad to, informationon student enrollment, promotion, retention and gender distribution, and onteacher education level, qualification and tenure to better inform policy makingwithin the MOE. A major objective will be to train Statistics Unit staff inroutine data collection and analysis.

Planning Adviser (60 staff months)

Working closely with members of the Planning Unit, the adviser will help developa monitoring system to assess the extent to which individual elements of theFive-Year Plan are being implemented. Where necessary, the adviser will suggestpolicy alternatives and strategies for achieving revised goals. The adviser willalso serve as theliaison between the Planning Unit and the many internationalorganizations/donors involved in the financing of various activities identifiedwithin the Fifth Five-Year Plan. This liaison work will include ensuring thatdonor-financed activities are in line with the objectives and priorities of theGovernment and that these activities do not duplicate activities supported byeither the MOE or other donors. Finally, the adviser will make sure that alldonors involved in the plan are kept informed about changes tc it. The adviserwill also assist the coordinator of the World Bank project in coordinating theimplementation and reporting of project activities.

Financial Adviser (60 staff months)

The adviser will be required to liaise with senior Ministry officials includingmembers of the Planning Unit when designing a financial management and accountingsystem. Responsibilities will include the expansion of the accounts department,strengthening the audit division, a study on the desirability of introducing acomputerized financial system, the development of accounttng and cost-budgetingsystems, assigning annual budgets to units (e.g. NCDC) within the Ministry andrevising the method for payment of funds under the warrant system (such asexpenses). The adviser will also assist in the manag_ment of protect-relatedaccounting and audits.

q..

- 114 - ANNEX 7

LESOTHO Pase I of 2EDUCATION SECTOR DEVELOPMENT PROJECT

I plementation Schedule

1991 m 109 1994 19" 19961 2 8 4 1 2 8 4 1 2 8 4 s 1 2 J 4 1 2 J 4 1 2 8 4

PROJECT s s a s s

Bard Prantatlon . s s s sCredit Effectivees s s s s sProJect CompletionCredit Closing

A. BASIC ED IATION s s s :1. Physical Fac. - Prlmry s s s sa Phoca I s s s sb. Phase II s s s sc. Phao III s s s sd. Furniture *. TA *f. School Mapping Study -- s s-g Prp. of Agreents s s s s s

2. Curriec. Instrue. Materials s s s a sa. National Timtabl _ s sb. Oevolopment of Techer s s s : s

Guides/Instrue. Materials * * - * *c. Produc. and Oeave. s s sd. Strengthening SSU _ _s _s _s* Proc. of Ve. and Equip. I s s s sf. Evel of Yo.c Secndary s s s s s s

and Prim. EW Programs a a a a : a

S. Studnt Aee ee . . t ::a. T ss b. PIlot Tet - Prlmry s sc. Modif. of Tt - Primry s s sd. Nationwide Ossaenstloe s t s s*. Cootl n.Asee. - S dCy I s s a sf. Transfer ot PSLE toCL s s * s s sg. ECO. Strengtoning

4. Prof Suport for Teachero s t s s sa. Prim. In-Sevice Training s sb, Training NMm MeTs t . £ ., S S Sc. Secondary In-Service Treg sd. Eff ilency Improvements I t t t t *. Ann-unce/1pm of Pol Chang_st

. Recruitment of T _achtre a a s

8. TEACoe TRAININO s t t s a a1. NTTC Institution Strengthening s *2. Facilitlee Expenio n S a s aS. Str n,th ning Prmry Pre- and t s a s s s

In-Servlce Training l *

C. TEOHNICAL ND VOCATInKL mUTIONs s s s s s s1. Quaikty and Cost lffestivemet s t a s a a

a. Standerdizing Craft Corr. t * _b. Evening Claes o a a *

2. Trade Teetng Center t t s s sa. 7easiblity Study s _ s t a t tb. Constructioe t a to¢. Operation s s s

8. Policy O.lopment , t a t a a :a. Policy Studies * * a a a

D. MATONOL UNSVEtS WtO L tOTHO ttt a. Modif. of Academi Pr" I * t t t t ab. Staff Devlopumnt t *e. Library Upgrading a * s a ad.Educ. Me. Ctr. Upgrading s *-- a a a s*. Ispl. Cost Contain. Ub a s * S a a af. Study of Univ. Overhedbe s s * * s s9.LAbor.ary Constron t Stt .a*.aS:

a a a S S S :

- 115- ANEX 7iape 2 of 2

1991 sn 1i9t 1w4 1096 1t01 2 a 4 i1 2 8 4 I 2 * 4 I 1 2 4 I 1 2 4:1 2 8 4

R. T TW IShCTAL MA al a a * a a 1. OC Rrpalcttoe a s s

a. T wnnin of ngonnt s s _

b. FrInene T a -E a - V h a a s t a a a

2. OScoteolMaagmoe a a a a a a *.C n"trua tln of C a M C s d ss

*. Oper"tlon & sainthnonce a a s _ as t * a d * u

J. Sth lfonar _ a a a a a*.Training . Hadt.ohoro a s * _b.Pro.*9 t.ah..I mo l*ordDO vt.a a . ... .a * . a

a a t a a a a4.U tZtolrei gand tt aluato n a s a a a a aa. St Mdotorin a . ..8 a a a ab.Pao.o * ui. (>R3) a s -...... a a a a

¢..Treining a a s......... a a sd.3O*oIin- 8udi.. a a a.___. a s s a*. Z.9l.nSbO _$ hCl tlo a aYr t ta t. Plan onltorang TA a - -a

- 116 -

ANNEX 8

KINGDOH OF LESOTHOEDUCATION SECTOR DEVELOPMENT PROJECT

Disbursement Schedule(US$ Million)

IDA LesothoFiscal Semester Disbursements Cumulative Z Dig- ProfileYear Disbursements bursed Z Disbursed

FY92 1 0.8 0.8 3 02 1.7 2.5 10 6

FY93 1 1.8 4.3 17 142 2.0 6.3 25 18

FY94 1 2.5 8.8 35 302 2.0 10.8 43 38

FY95 1 2.1 12 ,9 51 502 2.5 15.4 61 62

FY96 1 2.5 17v9 71 742 3.0 20.9 83 82

FY97 1 2.8 23.7 94 942 1.5 25.2 100 98

FY98 1 -- -- -- 100

Notes The project is expected to be effective on September 15, 1991, and closed onMarch 31, 1997.

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ANNEX 9Page l of 2

KIngdom of Lesotho

Education Sector Develoument Project

Supervision Plan

Approx. Espected Skill StaffDate Activity Requirements weeks

10/91 Supervision Mission Economist 8.0(Project Launch EducatorWorkshop) Procurement Expert

ArchitectEducation PlannerUSAID Staff memberEC Staff member

2/92 Review progress in Architect 6.0construction, vehicle Economistand goods procurement; Mygmt. Specialistassist in preparing Educator/Ed. Planner92/93 budget request;review MOE reorganiza-tion; general supervis-sion of all components.

6/92 General supervision ELonomist 4.0mission Aichitect

E:.iator/Ed Planner

10/92 General supervision Ecor-.)mist 4.0mission Arct 'tect

Edu:a 4 or/Ed Planner

3/93 Supervision (First Educatorl/ 8.0Project/Program Education PlannerReview) Higher Ed. Spec.

EconomistArchitectEd. Mgmt Spec.USAID staff

l/ One of the teacm members needs to have a background in dealing withTVE issues.

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ANNEX 9Page 2 of 2

8/93 Ganeral supervision Economist 4.0mission (also in- Ed. Mgmt. Specdepth review of Architectdecentralization & Educatorschool mgmt.)

12/93 General supervision TVE Specialist 3.0mission (special focus Architecton TVE) Educator

5/94 General supervisiovn Economist 4.0mission (review of Architectstudent assessment Exams Specialistand teacher recruit-ment progress)

9/94 Supervision mission Economist 8.0(Second project/ Architectprogram review) Education Planner

TVE specialistTextbook/Library

SpecialistEd. Mgmt. Spec.USAID staff

2/95 General supervision Educator 3.0mission (focus on Architectbasic education) Exams spec

8/95 General supervision Educator 3.0mission Architect

Economist

3/96 General supervision Economist 3.0mission Architect

Educator

P/96 Supervision mission Educator 3.0(begin work on PCR) Architect

Economist

1/97 PCR mission Educator 6.0EconomistEd. Mgmt. Spec.Architect

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ANNEX 10Page 1 of 4

KINGDON OF LESOTROEDUCATION SECTOR DEVELOPHENT PROJECT

LIST OF DOCUMENTS ON TEE PROJECT PFLE

A. Pro1ect Related

1. A Report on The Academic Program Of the National Universityof Lesotho, The Colorado College, 1990.

2. Chabane and Makhakhe, Study of Post Primary School ResourceUse, 1990.

3. Fallon, Peter. The Proposed Education Adjustment Project:Its Likely Impact Upon the Allocation of Public Expenditure,1990.

4. Keith, Sherry. Primary School Management in Lesotho: ADiscussion, 1990.

S. Lesotho: Public-Sector Financial Management, World Bank,1990.

6. Levine, Victor. Draft Recurrent Cost Projections, 1990.

7. Makhakhe and Pitso, Local Level School Management.

8. Makhetha and Pitso, A Report on the Analysis of theInformation Gathered from Headteacher on a ResidentialCourse at National Teacher Training College.

9. Mohapeloa, J. M.. Conditions of Service for Teachers,Lesotho Ministry of Education, 1990.

10. Read, Anthony. Lesothos Book Development Consultancy, 3-11th March, 1991, 1991.

11. Report of a Review Commission of the National University ofLesotho, 1989.

12. Somerset, Anthony. The Primary School Leaving Examination,1990.

13. The Structure and Operation of the Ministry of Education,Consultancy for the Government of Lesotho, StrathclydeRegional Councils Department of Education, 1990.

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ANNEX 10Page 2 of 4

14. USAID. "Lesotho Education Sectort Monitoring andEvaluation Plan." 1991.

B. Background

1. A Position Paper on Lesotho Primary, Secondary and Non-Formal Education, UNDP, 1990.

2. Botswana, Lesotho, and Swaziland Study of PublicAdministration Management: Issues and Training Needs, WorldBank, Report No. 5948, 1986.

3. Clarification of Lesotho's Education Policies andPriorities, Part II, Ministry of Education, Kingdom ofLesotho, 1989/1990.

4. Cobbe, James H., "The Educational System, Wage and SalaryStructures, and Income Distribution: Lesotho as a CaseStudy, Circa 1975," 1984.

5. Cobbe, James H., "The Changing Fature of Dependence:Economic Problems in Lesotho,' The Journal of Modern AfricanStudies, 21, 2 (1983), pp. 293-310.

6. Content Analysis of Reading and Mathematics Textbooks inFifteen Developing Countries, British Development Council,1989.

7. Cost Effectiveness of Education in the Kingdom of Lesotho,World Bank, Report No. 5088-LSO, 1985.

8. Cost-Benefit Analysis of Education in Lesotho, Ministry ofEducation, Lesotho, 1983.

9. Education in the Kingdom of Lesotho, UNICEF, 1990.

10. Education Policies for Sub-Saharan Africa: Adjustment,Revitalization and Expansion, World Bank, Report No. 6934,1987.

11. The Education Sector Survey, Maseru, 1983.

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ANNEX 10Page 3 of 4

12. Khabele, Joan M., "Social Soundness Analysis for the LesothoPrimary Education Project," for the United States Agency forInternational Development, July 1990.

13. Kingdom of Lesotho: Education Sector Memorandum, World Bank,Report No. 4022a-LSO, 1982.

14. Kingdom of Lesotho: Improving Quality and Efficiency inEducation: Toward a Plan for Reform and Revitalization,World Bank, Report No. 8066-LSO, 1989.

15. The Labor Force Survey, Btreau of Statistics, Kingdom ofLesotho, 1985/86.

16. Lesotho Primary Education Program PIDIPAIP Review , USAID,Project No. 632-0225, 1989.

17. Lesotho Distance Teaching Center, USAID, 1983.

18. Lesotho Public Expenditure Review: Education Sector, 1988.

19. Lesotho: Country Strategy Paper, World Bank, 1989.

20. Lesotho: Policy Framework Papers; 1988/89 to 1990/91;1989/90 to 1991/92; 1990/91-1992/93, World Beak, 1988-90.

21. Migration and Manpower in Lesotho, Bureau of Statistics,Kingdom of Lesotho, 1978/79.

22. Policies for Improving the Effectiveness of PrimaryEducation in Developing Countries, World Bank, Report No.8729, 1990.

23. Project Completion Reports and Project Performance AuditReports for Education Projects in Lesotho (First, Second,Third, and Fourth), World Bank, Report Nos. 2999 (1980);5356 (1984); 8238 (1989); and 8855 (1990);

24. Proposal to Provide Rural Basic Education to Basotho Througha "Learning Post" Network, UNICEF, 1982.

25. Public Expenditure Priorities in Lesotho, World Bank, ReportNo. 7243-LSO, 1988.

26. Rideout, William H., Jr., "Institutional Analysis andTraining Recommendations," University of Southern CaliforniaCreative Associates, April 1991.

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ANNEX 10Page 4 of 4

27. Sector Study on Manpower Requirements, GTZ Project, Maseru,1987.

28. Staff Appraisal Reports for Education Proijects in Lesotho(First, Second, Third, and Fou'rth), World Bank, Report Nos.0363 (1974)sl628 (1977); 3347 (1981); and 5020 (1984).

29. Teaching/Learning Strategies in Lesotho Primary SchoolClassrooms, Institute of Education, National University ofLesotho, 1989.

30. UNDP/Unicef in Cooperation in Education: Kingdom of Lesotho,UNICEF/UNDP.

31. USAID, "Report on Financial Management Assessment ofGovernment of Lesotho and Ministry of Education Essential toLesotho Primary Education Program: REF RFP LESOTHO 7-90,"prepared by Peat Marwick, Maseru, March 1991.

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ANNEX 11Page 1 of 7

KINGDOM OF LESOTHOEDUCATION SECTOR DEVELOPHENT PROJECT

MONITORING AND EVALUATION

A. OBJECTIVES

The Ministry of Education has two principal tasks for monitoring andevaluating its Five-Year Education Development Plan, 1991/2-1995/6. It mustassesss progress at regular intervals (a) in implementing the various sectoralprograms and policy reforms described in the Plan, and (b) in improvingprimary school quality -- the top priority for the Plan period. These tasksrequire that the MOE extensively build its capacity in monitoring andevaluation (M&E) at the central, district, and school levels.

B. APPROACH

A basic monitoring and evaluation system will be established to assistthe Ministry of Education (MOE) tot (1) keep track of the implementation ofthe Plan's prescribed educational improvements and policy changes, (2) assessthe effectiveness of the measures in moving toward greater educational qualityand efficiency, and (3) identify midcourse corrections that would improve Planperformance. Emphasis will be given to two related effortst the developmentand use of strategic annual program plans, and the establishment of aneducation management information system incorporating key indicators onprimary school quality -- including measures of student learning -- at, theiruse in decisions about school improvements.

The information provided through the M&E system, coordinated by thePlanning Unit of the MOE, is intended to serve various users. It will be theprincipal means through which the Government, and the donors who ar', psrallel-financing a portion of the Plan, are able to verify implementation and assesswhether the expected interim and long-term effects are being realized. Itwill inform national authorities of educational problems which require theirattention and possible shift In resources. It will provide specificinformation to district and local authorities to enable them to assess changesat their levels of responsibility.

The Ministry will build upon its current data collection and reportingefforts and employ technical assistance to develop further competence in datacollection and analysis related to educational reform. The establishment ofthe M&E system will be linked to the strengthening of the MOE's capacity instrategic and operational planning and task-based budgeting.

C. TASK ONE -- MONITORING PLAN DIPLEMENTATION

The MOE will be responsible for monitoring progress in implementing themeasures prescribed in the Education Sector Development Plan. These pertainto all levels of the education and training system and to its administrationand management. The measures entail policy reforms, organinationalImprovements, and service delivery.

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ANNEX 11Page 2 of 7

Essential objectives concern the education sector broadly -- financingand expenditures, institutional development and school management, conditionsof service for teachers, monitoring and evaluation -- and specific subsectors.These objectives are listed in Annex 2. along with sets of interim benchmarksfor three periodss prior to credit effectiveness, 18 months thereafter, and18 months subsequently. The Government will provide semi-annual reports onprogress toward achievement of the targets. The reports will includedocumentation demonstrating that the policy changes and other actions havetaken place, and strategies or guidelines formulated to implement theobjectives. The achievement of some targets, such as a decline in greatlyoverage students and a decrease in repetition rates, will be monitored throughthe annual statistical data collected for the education management informationsystem, described under Do bblow.

The MOE has identified the need for a more strategic planning procedureso that (a) the activities of each unit of the Ministry are linked to broadMinistry objectives, (b) planned activities are aligned with availableresources, and (c) activities across units are coordinated, and potentialconflicts are anticipated and resolved. The move to strategic planning isimportant as the Ministry implements the new Education Sector DevelopmentPlan, because the program's success will depend on undertaking manysimultaneous initiatives in a coordinated way.

Strategic annual planning will enable the Ministry to:

a. ensure that activities specified in the Development Plan arereflected appropriately in the annual work plans of the pertinent Departments;

b. anticipate and correct possible conflicts among activities plannedby different Units (for example, MOE Units define the in-service trainingwhich they plan to provide wLthout reference to the training which other Unitsintend to provide for the same personnel, thus inviting replication andunrealistic claims on the individuals' available time);

co monitor interim targets for Plan activities (for example, if theobjective is to distribute revised (streamlined) curriculum in three years,the currLculum revision process should be underway before the second year, anda decision made early in the first year as to a national curriculumtimetable);

d. anticipate the steps required to ensure the intended policyreforms; and,

e. formulate revised courses of action if conditions warrant.

The strategic planning process will involve five steps:

1. The Minlstry's Planning Unit will provide guidelines for thepreparation of annual work plans by all Heads of Programs or Departments. TheguLdelines will be issued prior to the program year, and refined on an annualbasis. Although work plans were submitted in the past, these tended to stategeneral activities rather than specific objectives and the intermediate

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ANNEX 11Page 3 of 7

targets to be achieved. The new annual plans will be more systematic. Theywill reflect the policy changes and object!ves in the Five-Year Plan whichpertain to the work of the program or department, and detail the targets,strategies, and task-based budget required to implement the programs. Theplans will specify areas where the program director needs to collaborate withother directors to dovetail work. Examples of areas which requirecoordination across departments include the in-service training for districteducation officers and teachers, and the evaluation of primary curriculum interms of its scope and sequence (NCDC) and use by teachers ia primaryclassrooms (District and Assistant Education Officers). The plans will alsoindicate how the official-in-charge intends to promote greater participationamong his or her staff in devising usefvl approaches to their work.

2. Heads of Programs or Departments will prepare Annual Program Planswhich:

a. Relate objectives to targets, strategies, and resources:

Ci) listing the objectives set for the Program in the Five-YearDevelopment Plan, and adding others which are appropriate;

(ii) listing the targets which the Program aims to achieve in thePlan's first year (1991/2-1992/3);

(iii) formulating an implementation schedule to achieve thetargets set;

(iv) describing the strategies to be used; and

(v) estimating the resources required (personnel, facilties,other budget) to achieve the targets.

b. Identify the areas of work that need to be pursued in cooperationwith other units, and how this will be done.

c. Indicate communications which are planned to solicit ideas andcooperation in pursuit of the program objectives:

(i) from staff; and

(ii) from groups outside the Ministry.

d. Specify training requirementss

(i) that which is most essential; and

(ii) that which is desirabl' ,hough less immediately pressing.

3. The Planning Unit will provide foedback on the Departmental plans,and suggest revisions, to ensure that:

a. each Department's objectives are in line with those of theMinistry;

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ANNEX 11Page 4 of 7

b. the strategies and resource allocations are realistic;

c. major constraints are addressed; and

d. possible conflicts across Departments (in terms of demands onstaff time, resources, and scheduling) are reduced.

4. The Planning Unit will compile the revised Departmental plans intoa Ministry-wide Annual Implementation Plan.

5. The annual plans will be used as a basis for periodic discussionsamong managers and staff to review how well the programs are progressing,identify any problems that have arisen, and collectively consider what betterapproaches could meet the objectives.

The plans are meant to guide action and to provide quick and helpfulfeedback on performance so that corrective actions can be taken. Thepreparation of program plans, and their review at midyear and end-of-year,will thus become an important tool for managing the Five-Year Plan. Theannual plans will become increasingly useful during the Plan period asmanagers and staff develop familiarity with the approach and receive relatedtraining. By about the fourth year of the Plan period, the annual setting ofobjectives and review of progress will be instituted at each level ofresponsibility -- including that of the individual teacher.

The Ministry will assess its training requirements in the areas ofstrategic and operational planning, objective budgeting, monitoring,interactive communications, and the fostering of cooperation amongdepartments, and engage expertise during the Plan period as needed.

D. TASK TWO -- MONITORING AND EVALUA"ING PRIMARY SCHOOL IMPROVEMENT

While the Education Sector Plan aims to increase the efficiency andeffectiveness of the overall system, the main focus will be on improvingprimary schooling, beginning with the lower standards. Since the improvementof primary education will undoubtedly remain the Ministry's highest prioritythrough the year 2000, special effort will be made to establish a timely andaccurate information system with key data -- on the inputs, processes, andoutputs of primary education -- that are useful for monitoring and makingdecisions about school quality. In addition, the Ministry will expand itscapacity for evaluating the impact of aspects of the Program at the primarylevel, especially in terms of student learning.

Monitoring Inputs. Initially, attention will be on monitoring theimproved inputs to primary schooling which result from implementing theDevelopment Plan. These include the extent of increased resources providedfor primary education, the number of teachers recruited, the classrooms builtand furnished, the skills developed among teachers and headteachers, thecurricula streamlined, the instructional materials developed and distributed,and so on.

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ANNEX 11Page 5 of 7

Monitoring Outputs and Measuring Achievement. Monitorable outputsmainly concern student attainment and student achievement. Attainmentmeasures include rates of progression, repetition, and attrition. Patterns ofchange in these measures, and change in the average years to complete thecycle, are key indicators of the extent of efficiency in the education system.

Measutes of student learning, with which to assess trends and individualpupil progress, are inadequate. Two types of measures will be developedduring ths Plat The first type concerns means for continuously monitoringindividual stude..t progress within the classroom. Skills checklists forStandards 1-3, and end-of-level tests for Standards 4-6, will be developed orrefined and introduced to teachers to enable them to regularly assess whethertheir students have learned the intended curriculum. These tools can helpteachers identify when further instruction is needed for individual students,how well they are teaching, and whether students have mastered the core skillsfor progressing to the next level. The utility of continuous assessmentmeasures depends largely on teachers' skill in using them.

The second type of measure concerns the national assessment of studentachievement to gauge the extent of progress over time. This type ofassessment is made of a sample of students, in a sample of classrooms. Itpermits the monitoring of student achievement by district or otherdisaggregation. No national measure exists to assess what, and how well,Basotho children are learning during the course of primary school, especiallyin the lower grades. (The School Leaving Exam at the end of Standard 7 serveschiefly to select entrants to secondary school. Recommendations have beenmade by the Appraisal Mission that the scope and format of the test bebroadened to ensure that curriculum goals are adequately reflected.) Toprovide objective data on levels of student achievement, indicators will bedeveloped for achievement tests at the end of Standard 3 and (possibly)Standard 6.

Although increased student achievement is the most important goal forthe education system, large increases in achievement should not be expectedduring this Plan period. Activities during the Plan are aimed at establishingthe necessary conditions for student achievement to occur. Aggregateincreases in student achievement would not be expected before more effectiveinstructional materials can be prepared and distributed to the schools (in thelatter part of the Plan period) and teachers receive related inservicetraining (including newly recruited teachers many of whom will begin with lessprofessional training than present teachers).

Evaluating Effects. Beyond the desire to monitor whether the intendedchanges have been made in the inputs to primary education, and what outputshave resulted, there is also interest in evaluating whether the improvedinputs and processes (e.g., facilties and furniture, instructional materials,teachers' management of learning, headteachers' management of schools,conditions of service, and professional support from inspectors and resourceteachers) have actually contributed to the outcomes desired (namely, groaterstudent achievement, reduced repetition and attrition, and improved teacherretention and morale). The aim is to better understand the relationshipsamong these elements so that resources can be put to best use and policies set

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ANNEX 11Page 6 of 7

for making primary education more effective and efficient. This level ofanalysis -- to evaluate the effects of school characteristics and teacherbehavior on student achievement -- is complex and must be conducted over aterm longer than the Five-Year Plan. It requires an adequate clustering ofInputs and methods, which will be obtained only toward the end of this -- andduring the following -- Plan period.

Establishing an Education N8nagement Enformation System. The Ministrywill monitor and evaluate primary education by expanding its collection of keydata on education inputs, school and classroom management and, eventually,student achievement; and by investigating special topLcs and problems. Durlngthe first year of the Plan period, the Ministry's Planning Unit will definethe steps to a basic monitoring and evaluation sysetem for assessingImprovements in primary education. The design will:

o indicate the main education policy or management decisionswhich the Ministry has to make during the next few years, thekinds of questions it must answer to be able to make thedecisions, and the information it needs to answer the questions;

o relate the primary-level improvements sought (inputs,processes, and outputs) during the Plan period to theidentification of key indicators on which information is required;

o outline means for the -outine and efficient collection andcompilation of the data required at the levels of the classroom,the school, subdistrict, district, and Ministry;

- establish timely feedback mechanisms at the various levelsso that the data can be used for educational management decisions;

3 speclfy the types of training needed for personnel atdifferent levels (e.g., in educational. efficiency concepts sndanalysis, monitoring school conditions, classroom and schoolmanagement, continuous assessment of student learning, maintenanceof data quality, student achievment testing, and analysis ofpolicy options);

o indicate the resource requirements by component tasks; and,

o draw up a feasible timetable for implementation.

The Ministry's Statistics Office, under the Planning Unit, will be thelocus for the primary education information system. Many school-level dataare regularly collected, including:

- enrollment by grade, age, gender, and district;- teacher supply and demand, by qualifications, length of

service, and subject area;- student flow: repetition and dropout;- JC examination results;- facilities and furnishings;- avallability of instructional materials;- selected trend data on the above indicators;- selected ratios from the above data.

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ANNEX 11Page 7 of 7

These data have not been readily accessible or distributed in summaryform to those outside the central Ministry who could make use of them inmonitoring, analyzin,g. and evaluating policy reforms at the primary level.Greater attention needs to be given during the Plan period to more effectiveuse of the data, at central and local levels, in planning, resourceallocation, and program management. This will involve analyzing theimplications of trends, and evaluating (and anticipating) the consequences ofalternative courses of action.

The intention during this and the following Plan period is to graduallyequip ten District Resource Centers (DRCs) to serve as important subcentersfor data collection, analysis, and feedback to schools and to the centralMinistry. The DRCs will be furnished with basic equipment and supplies formonitoring primary schools in the area, and staff will be supported in thesetasks. District Education Officers will be trained to conduct comprehensiveinspections of primary schools and to sample student achievement. DistrictResource Teachers will be trained to gather 'qualitative' data from classroomobservations. Training during the Plan period for headteachers and teacherswill include methods for continuously assessing progress by student, class,and school. The capacity of the Evaluation unit of the NCDC will bestrengthend for evaluating the actual use and suitability of subject curriculain the classroom.

The Ministry plans to provide funds for research and evalaation studies(at least one a year) on topics it judges vital to the improvement of primaryschooling. These include the analysis of policy-amenable factors related tostudent learning, student attrition and repetition, effective teaching andeffective school management. Rather than undertake most of the researchitself, the Ministry will, from time to time, announce its research prioritiesand invite a competition of proposals from qualified individuals andinstitutions.

The Ministry, through the Planning Unit, will enlist assistance from asuitable group to plan an education management information system (EMIS) whichlinks national policy priorities to data collection, interpretation, and thepresentation of documented options for decision-making. The plan will detailthe types and formats of training which will be appropriate, over the five-year period, for central Ministry staff and for District Education Officers,District Resource Teachers, and Headteachers.

Currently, the Planning Unit is staffed with four posts, one of which isoccupied by an individual returning in September from M.A.-level training.Two additional posts have been requested and these are urgently needed forassistance with overall planning, coordination of Plan implementation, reviewand synthesizing of reports, and budget analysis. Masters-level training ineducation planning, economics, and evaluation will be sought for at least twopersons during the Plan period.

Additional long- and short-term assistance is required to assist inestablishing an information system for monitoring primary school quality.Short-term expertise should also be employed in the areas of objective-basedplanning, budgeting, and review to increase the efficiency and effectivenessof programs throughout the sector.

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