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Document of a ; a .

The World Bank

FOR OFFICIAL USE ONLY

Report No. 2305-PAK

PAKISTAN

STAFF APPRAISAL OF A

PRIMARY EDUCATION PROJECT

March 15, 1979

Projects DepartmentEast Asia and Pacific Regional Office

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

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CURRENCY EQUIVALENT

Currency Unit - Pakistan Rupee (PR)

US$1 PRs 9.90PR 1 US$0.101

Fiscal Year

July 1 - June 30

School Year

March to February

GLOSSARY

Geographic and Administrative Units

NWFP - Northwest Frontier ProvinceDivision - The largest unit of a province - not prominent in primary

school management.District - The unit below the division; the dominant unit for local

school management. The total number in the nation is 51.Tehsil - The unit below the district, not now used for educational

management but used in the project for selection of schools.

Other Terms

AEO - Assistant Education OfficerDEO - District Education OfficerFPU - Federal Project UnitPTC - Primary Teacher CertificatePWD - Public Works Department (provincial)PWP - Peoples Work ProgramTTI - Teacher Training Institute

PAKISTAN

PRIMARY EDUCATION PROJECT FOR OFFICIAL USE ONLY

TABLE OF CONTENTS

Page No.

Basic Data

Glossary

1. OVERVIEW OF THE PRIMARY EDUCATION SYSTEM . .. . . . . . . . . . 1

Structure and Distinguishing Characteristics . . . . . . . . .Education Finance .1... . . . . . . . . . . . . . . . . . .Primary Education .... . . . . . . . . . . . . . . . . . . Z.'

Curriculum . . . . . . .. . . . . . . . . . . . . . . . . 3Textbooks . . . . . . . . . . ... . 4Management and Supervision . ........ .. . . 4Teacher Training .... . . . . . . . . . . . . .... 5In-Service Training ... . . . . . . . . . . . . .... 6

Educational Plans .......... . . .... . 7Bank Group Participation ... . . . . . . . ... . 8

2. ISSUES IN PRIMARY EDUCATION . ............. .. . . 10

Problems . . 10Unequal Opportunity . . . ....... 10Wastage . . . . . . . . . . . . . . . . . . . . . . . . . . 11Low Quality .11Financial Constraints .12

Causes .13Economic . . . . . . . . . . . . . . . . . . . . . . . . . . 13Socio-cultural . . . . . . . . . . . . . . . . . . . . . . . 13Educational . . . . . . . . . . . . . . . . . . . . . . . . 14

A Strategy for Rural Primary Education . . . . . . . . . . . . 14Equal Opportunity .... . . . . . . . . . . . . . . . . . 14Wastage .... . . . . . . . . . . . . . . . . . . . . . . 15Quality .... . . . . . . . . . . . . . . . . . . . . . . 15Costs .... . . . . . . . . . . . . . . . . . . . . . . . 15

3. THE PROJECT .17

Objectives .. 17Content, Scope and Sequence . . . . . . . . . . . . . . . . . 18Project Components .... . . . . ...... . . . . . . . . 19Teacher Service ............. . 19Supervision . . . . . . . . . . . . . . . . . . . . . . . . 21Instructional Materials and Curricula . . . . . . . . . . . 22Physical Facilities .. 23

This report is based on the findings of a mission to Pakistan during August/September 1978 composed of Messrs. F. Farner (General Educator and missionleader) and T.S. Sigurdsson (Architect), Ms. I. Tsakok (Economist) andMr. P. Dalin (Educational Training Specialist, consultant).

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

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Page No.

Staff Development and Research ... . ..... . . . . . 24Training . . . . . . . . . . . . . . . . . . . . . . . . 24Training Method and Duration . . . . . . . . . . . . . . 24Experimentation and Evaluation. . . . . . . . . . . . . . 26Technical Assistance and Studies . . . . . . . . . . . . 27

4. PROJECT COSTS, FINANCING, IMPLEMENTATION AND DISBURSEMENT . . 28

Costs of the Project ... . . . . ..... . . . . . . . 28Base Cost Estimates . . . . . . . . . . . . . . . . . . . 29Cost Per Pu-Ail Place . . . . . . . . . . . . . . . . . . 30Foreign Exchange Component . . . . . . . . . . . . . . . 30Duties and Taxes . . . . . . . . . . . . . . . . . . . . 31

Project Financing . . . . . . . . . . . . . . . . . . . . . 31Implementation .... . . . . ...... . . . . . . . . 31Administration . . . . . . . . . . . . . . . . . . . . . 31Federal Level .... . . . . ..... . . . . . . . . 32Provincial Level ... . . . . ..... . . . . . . . 33

Training .... . . . . . ...... . . . . . . . . . 34Research and Evaluation . . . . . . . . . . . . . . . . . 35Physical Design .... . . . . . . . . . . . . . . . . . 35School Location Planning ... . . . . . . . . . . . . . 35Finance Implementation ... . . . .... . . . . . . . 35Implementation Schedule . . . . . . . . . . . . . . . . . 35

Procurement .. 36Disbursements .. 37Documentation .. 38Accounts and Audits .. 39

5. BENEFITS AND RISKS .39

Benefits . . . . . . . . . . . . . . . . . . . . . . . . . . 39Risks ........................... . 40

6. AGREEMENTS REACHED .40

ANNEXES

1. Comparative Education Indicators . . . . . . . . . . . . . . . 422. Implementation Chart ... . . . . . . . . . . . . . . . . .. . 443. List of Background Papers Available in Project File . . . . . . 45

MAP

Project Districts and Tehsils (IBRD 14055)

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Page No.

List of Tables

1.1 Opportunities for Primary Education in Pakistan 1975/76 . . . . 31.2 Enrollment in Primary Schools, by Sex and Province,

1977/78 .... . . . . . . . .. . . . . . . . . . . . . . . 31.3 Estimated Number of Primary Teachers by Sex and Province

('000), 1977/78 . . . .4. . . . . . . . . . . . . . . . . . 41.4 Preservice Primary Teacher Training, by Sex and Province, 1978. 61.5 Education Plans, Targets and Achievements at the

Primary Level ............... 71.6 Primary Education: Share of Total Recurrent Expenditures (x) 8

2.1 Indicators of Access to Primary Schools by Sex and Province,1977/78 .10

2.2 Percentage of Untrained Teachers by Sex and Province, 1973/74 . 11

3.1 Coverage of the Project by Sex and Province, 1977/78 . . . . . 193.2 Relationships Among Schools, Supervisors and Learning

Coordinators, by Sex and Province . . . . . . . . . . . . . . 213.3 Physical Facilities by Sex and Province . . . . . . . . . . . . 233.4 Number of Personnel Requiring Training, by Sex . . . . . . . . 243.5 Content, Number of Trainees, Locale and Timing for Segments

of Training ... 253.6 Composition of the "Segment A" Group Selected for Training . . 26

4.1 Summary of Project Costs by Province . . . . . . . . . . . . . 284.2 Summary of Project Costs by Category of Expenditure . . . 294.3 Area and Cost per Place . . . . . . . . . . . . . . . . . . . . 304.4 Financial Plan . . . . . . . . . . . . . . . . . . . . . . . . 324.5 Provincial Implementation Staffing Plan . . .344.6 Schedule of Expenditures and Disbursement . . . . . . . . . . . 38

BASIC DATA - PAKISTAN /1

Enrollment: 1977/78Number Gross enroll-enrolled ment ratio(thousands)

Primary schools (Grades 1-5)/2 5,927 54% (M:73%; F:33%)Middle schools (Grades 6-8)/2 1,293 23% (M:34%; F:10%)High schools (Grades 9-10)/2 513 14% (M:22%; F: 6%)Intermediate level: Arts and sciencecolleges (Grades 11-12) 190 (M:141; F:49)

Degree level: General universities & arts& science colleges (Grades 13-14) 64 (M:45; F:19)

Postgraduate - General universities& degree colleges (Grades 15+) 22 (M:17; F: 5)

Vocational schools (excl. teacher training) 34 (M:27; F: 7)Teacher training (Grades 11-15) 25 (M:15; F:10)Professional colleges and universities

(excluding colleges of education)(Grades 11-14+) 50 (M:44; F: 6)

Education Finance: 1976/77

Total education expenditures by Government (PRs millions) 2,487As % of total expenditures by Government 6.5%As % of GNP 1.7%Per capita (PRs 34) $3.45(1977/78 per capita: PRs 43 $4.35)

Recurrent education expenditures by Government(PRs millions) 1,870As % of total recurrent expenditures by Government 8.2%

/1 See Annex 1 for Comparative Education Indicators.

/2 Data include overage students.

1. OVERVIEW OF THE PRIMARY EDUCATION SYSTEM

Structure and Distinguishing Characteristics

1.01 Education in Pakistan differs from that of most other developingnations in many ways, the most important of which are:

(a) separate schools are operated for males and females, witha significant disparity between the sexes in enrollment ratios:73% for males and 33% for females at the primary level;

(b) educational administration and financing are divided betweenfederal and provincial governments; together the two levels ofgovernment allocate less than 2% of GNP to education (compared to3-5% in other developing nations); and

(c) limited opportunities for basic education, coupled with low demandamong parts of the society, result in low literacy rates (24%overall, male 36% and female 11%); unlike most other developingnations, the literacy rate is remaining roughly constant.

1.02 The formal education system is comprised of the following levels:

Primary: - Grades 1-5 Ages 5-9 (nominally)Secondary: Middle - Grades 6-8 Ages 10-12t

High - Grades 9-10 Ages 13-14Intermediate - Grades 11-12 Ages 15-16Degree and Postgraduate - Grades 13-14+ Ages 17-18+

Overall, enrollments are increasing slightly faster than the populationgrowth rate, and primary enrollment ratios increased from 50% to 53% between1972 and 1977. Access is imbalanced with significantly lower enrollmentof girls generally and of both sexes in rural areas. Less than 4% of primaryand secondary pupils attend private schools. Educational content has astrongly academic and theoretical bias with little relevance to life andwork, even in the technical and vocational courses. Rigid, memory-basedteaching is the rule and is reinforced by the examination system. Teachersand other educators are frequently absent from their duties, and difficultieswith assignment of staff are common at all levels. Multiple languages impedelearning: in 90% of the homes a regional language is spoken but education isconducted entirely in Urdu (or English) after the early primary grades.Problems result from the division of administrative responsibility: theprovincial governments have responsibility for building and maintainingschools, and employing personnel, but they share responsibility for generalpolicy, curriculum, development of teaching materials, and planning andfinance with the federal government. Education remains seriously underfinanced,especially at the primary level.

Education Finance

1.03 Education financing in Pakistan is characterized by:

- the low share of education in total developmental resources;

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- a particularly low share of the budget allocated to the primary level;

- the division of responsibility between the federal government(development costs) and provincial governments (recurrent costs); and

- the insignificant local community and private contributions to theschool system.

In Pakistan, public educational financing falls below the averages for LDCson three key indicators: (a) government revenues represent only 14-15% ofGNP compared to 16-17% in most LDCs; (b) less than 8% of public expendituresis allocated to education (roughly 20% in other LDCs); and (c) resultingeducation budgets are less than 2% of GNP (compared with 3-5% in other LDCs).Primary education receives a lower share of the education budget than thepostsecondary level (34% vs. 38%), and improvement of the lower level hasbeen hampered in the past by curtailment of primary allocations in responseto budgetary pressure. A persistent problem in the sector has been theimbalance between federal and provincial expenditures, i.e., the high ratioof capital (30-35%) to recurrent expenditures (65-70%), which has led toinadequate use (and hence wastage) of facilities built with federal funds.Recurrent costs per student are especially low at the primary and secondarylevels and contribute to the low quality of the system.

1.04 Since recurrent expenditures constitute the bulk of educationexpenditures, the potential for raising the level of recurrent expendituresdetermines the scope for expansion and improvement of the education sector.The Fifth Five-Year Plan sets the target for recurrent expenditures onprimary education at 70% of total primary allocations. However, recurrentexpenditures are provided solely by provincial governments; they alreadyconstitute a significant proportion (roughly 30%) of total provincialrevenue expenditures, and increases in the provincial budgets are severelylimited. The provincial budgets have reported yearly deficits throughoutthe 1970s, and the recent (since 1975/76) increase in federal transfersreflects their worsening budgetary situation and increased reliance onfederal funds at a time when the federal budget itself is under considerablestrain.

Primary Education /1

1.05 Primary education serves a total enrollment of more than 5 million,about half of the relevant age group (Table 1.1), 73% for boys and 33% forgirls (Table 2.1). Sixty percent of total enrollment is located in Punjab(Table 1.2) while Baluchistan has only about 2%. In the five grades, girlscomprise less than 30% of total enrollment, and in Baluchistan and NWFP thecorresponding figure is only 17%. National enrollment declines from over1.8 million in grade 1 to 0.7 million in grade 5. Primary schools are small;there are over 52,000 (one-third for girls) and the typical school has100-110 students and 2-3 teachers. Eighty-five percent of schools are rural.Over 130,000 teachers are assigned to primary schools (Table 1.3). Twoother types of primary education continue on a limited scale: Mosque schools

/1 Other levels and types of education are described in a current EducationSector Memo, December 12, 1978.

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where the Imam teaches children Islamic studies and the Holy Quran andMohallah Schools where literate women in the local area teach girls the HolyQuran, Islamic studies and skills of home management. These schools whichalso serve out-of-school youth and adults, have been designated for addedemphasis in an interim educational plan published in October 1978 (para 1.13).

Table 1.1: OPPORTUNITIES FOR PRIMARY EDUCATION IN PAKISTAN, 1975/76

Male Female Total

Population, 5-9 5,412,000 4,922,000 10,334,000No. of primary schools 36,300 16,300 52,600No. of primary school teachers 90,300 39,200 129,500Teachers per school 2.5 2.4 2.5

Primary school enrollment 3,680,000 1,424,000 5,104,000Enrollment/population, 5-9 68% 29% 49%Enrollment/school 101 87 97Enrollment/teacher 41 36 39

Source: Pakistan Education Statistics, 1976.

Table 1.2: ENROLLMENT IN PRIMARY SCHOOLS BY SEX AND PROVINCE, 1977/78

Punjab Sind Baluchistan NWFP Fed. Terr. Total

Grade1 Total ('000) 1,084 428 52 235 51 1,851

% Female 38 26 17 18 14 31

2 Total ('000) 830 319 32 153 40 1,373% Female 34 26 16 16 10 29

3 Total ('000) 652 253 20 135 25 1,084% Female 31 29 20 16 12 28

4 Total ('000) 530 206 14 120 22 892% Female 29 32 14 16 14 27

5 Total ('000) 429 184 11 85 18 727% Female 27 32 18 18 11 26

1-5 Total ('000) 3,525 1,390 128 728 155 5,927% Female 39 28 17 17 12 29

Source: Fifth Five-Year Plan, Annexes PI-PXVIII.

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1.06 The primary school curriculum covers seven subjects in a 6 day, 26-hour school week: language, 8 hours; mathematics, science and Islamic studies,4 hours each; and social studies, health and physical education, and art, 2-3hours each. The curriculum does not sufficiently emphasize basic language andnumeracy skills, which account for less than half of the total time, while thetime devoted to health, physical education and arts roughly equals the timeallocated to language. In practice, science and art are often neglected oreliminated because materials are in short supply and teachers are unable toteach the subject. There are many official and unofficial holidays, and thenumber of actual school days per year ranges between 120-130 compared to150-180 days in other developing nations. Schools are often closed duringinclement weather, or the many children in grades 1 and 2 are excused andtheir accommodations used by the few students in the upper grades.

1.07 Textbooks for each grade for four major subjects (Urdu, mathematics,social science and science) are developed and authorized by provincial text-book boards under general guidance from the federal authorities and purchasedby pupils at prices ranging from PR 1 to PRs 4 per book. The costs of textsare borne by the pupil's family, except in Baluchistan where some free orsubsidized textbooks are provided. On a given school day, about half thestudents are without textbooks, particularly serious in a system where instruc-tion is based on the textbook and where there are no other instructionalmaterials. The content of texts has recently been revised, but in generaltexts do not make sufficient use of local or regional examples. No informationis available on the educational achievement of those who do complete primaryschool.

Table 1.3: ESTIMATED NUMBER OF PRIMARY TEACHERSB,Y SEX AND PROVINCE ('000), 1977/78

Punjab Sind Baluchistan NWFP Fed. Terr. Total

Male 49.1 28.2 2.6 8.6 1.5 90.0Female 26.3 9.5 0.5 3.0 0.7 40.0

Total 75.4 37.7 3.1 11.6 2.2 130.0

Source: Projections of 1974/75 data.

1.08 Management and supervision of primary education is provided byprovincial education organizations through delegation of functions to divisionand district levels. In fact, the primary and secondary levels (grades 1-10)are linked under the term "school education" and are managed together. Thisresults in overemphasis of grades 6-10 to the neglect of grades 1-5 sincemanagers perceive the upper grades to have more prestige and importance.Grades 1-10 are under the control of a District Education Officer (DEO),usually male, but in a few districts there are two - one of each sex. The DEOis assisted by one or more deputies (DDEOs) and a larger number of male and

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female assistant education officers (AEOs)./l The overall ratio of AEOs toteachers is about 1:250, but since AEOs also spend most of their time onsecondary school matters, the nominal number of teachers per AEO at theprimary level is at least 500 for the typical district and over 700 in some.With an average school size of two teachers, the typical AEO is expected tocover 250-350 schools, largely without transport: a reasonable ratio wouldbe 25-40 schools each visited 5-8 times per year. As a result of theseconstraints, primary schools remain largely unsupervised.

1.09 Teacher training for primary education is conducted in one-yearcourses (Table 1.4). Primary teacher training is provided in 64 TeacherTraining Institutes (TTIs) that have an average capacity of only 150 studentsand a combined output of about 12,000 p.a., less than 10% of the currentstock of 130,000 teachers. Most TTIs are divided by sex, and less thanone-third cater to females. As a result of inadequate overall capacity,about 14% of male teachers and nearly 25% of female teachers enter servicewithout training; most of them are qualified by external examinations /2while others are expected to take preservice training after a few years ofexperience (see Table 2.2). Facilities of the TTIs are also inadequate;there are often no laboratories, workshops or libraries, and almost noequipment or suitable furniture. A new curriculum for primary teachertraining announced in 1976 divides a 48-week instructional year (33 hours perweek) into 10 topic subjects and short and long-term practice teaching of 3and 5-weeks' duration. Seven curricula cover methods of teaching the prin-cipal primary school subjects and the remaining three include principles ofeducation, child development, and school and classroom organization andmanagement. Although this new plan is an improvement over the previouscurriculum, operation is marginal due to weaknesses in staff, facilities andequipment. Almost all TTI staff were prepared as secondary teachers;virtually none has ever taught in primary schools and many have not eventaught in general secondary schools. As a result, they are unable to preparetheir students for the physical conditions and pupil needs and behavior inprimary schools. Staff often resort solely to lecture methods inappropriatefor the type of teaching needed in primary schools.

1.10 Both preservice and in-service training need to be expanded andimproved, and plans have been developed to cover population and enrollmentgrowth and to reduce class size. However, they have been largely suspendedbecause many trained teachers remain unemployed in urban areas and no way hasbeen found of inducing them to accept posts in rural areas. Major shortcomingsin the preservice training system include irrelevant curricula, poor teachingand inadequately motivated students, many of whom do not enter teaching aftertraining. The Government plans to shift to a predominantly female primary

/1 For example, for the 21 districts of the largest province, Punjab, thereare 25 DEOs (4 female), 30 DDEOs (16 female) and 361 AEOs (110 female);the ratio of primary teachers to administrators varies from 79 in Lahoreto 278 in Faisalabad, compared to the mean for the state of 184.

/2 External examinations are expected to be phased out in accordance withthe Credit Agreement of the Third Education Project (Cr. 678-PAK).

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school training force: the present output of female teachers falls far shortof anticipated demand, and the Government therefore intends to convert somemale institutions to serve female enrollment. The supply of primary andmiddle school teachers, particularly for girls' schools and for rural areas,is expected to increase by 1980 as a result of Credit 678-PAK which willconstruct and equip 2,200 additional training places to expand capacity by 10%for males and 50% for females.

Table 1.4: PRESERVICE PRIMARY TEACHER TRAINING, BY SEX AND PROVINCE; 1978

A. General Types, National Totals

Entry OutputNo. of after per year

Level Institution institutions grade (1978-80)(Est) Certificate

Primary Teacher Training 64 10 12,000 Primary TeacherInstitute (TTI) Certificate (PTC)

B. By Sex and Province

No. of Institutions Punjab Sind Baluchistan NWFP Fed. Terr. Total

Male 19 11 4 5 39Female 9 4 1 2 16Both 3 2 0 0 4 9

Total 31 17 5 7 4 64

Source: "Directory of the Teacher Education Institutions in Pakistan," January 1978.

1.11 Opportunities for in-service training are limited and most teachersonly receive preservice training. The void in in-service training forprimary teachers is substantial in view of the large stock of teachers ineach jurisdiction (Table 1.3). To provide in-service training, the Governmentcreated 17 centers to offer this type of training. The four provinces andthe Federal Territories each have a center for secondary training, but thereis no primary level center in Baluchistan. In addition, five general centers(one in Punjab and four in the Federal Territories) focus on curricula designand research. The Government now places special emphasis on in-servicetraining in view of the introduction of new textbooks, a trend toward reorien-tation of the curricula and institution of a new curriculum for preserviceeducation. There is also concern about the 25% of existing teachers whohave had no preservice training. A program to provide all existing teacherswith a short period of in-service training by 1980 was announced in 1977 usingthe centers mentioned above and a special corps of master trainers who wouldconduct training at the local level. This plan is being implemented slowly;however, it is not equal to the need to cover about 130,000 existing teachersand only about 10,000 have benefitted to date. This program is viewed as a

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crash measure, since a continuing and recurrent training system is needed tohandle at least one-third of the primary teachers each year. Staff andfacilities used for preservice training should form a nucleus for in-servicetraining. In-service training that is available also lacks quality andrelevance. Instruction is given entirely by lectures conducted by staff whohave no primary school experience. Daily sessions are long and do not retainthe interest of trainees. No emphasis is given to the teachers' priorityneed for practical means to handle large multigrade classes in language andmathematics.

Educational Plans

1.12 Under Pakistan's first four plans (1955-75), education spending hasaimed at physical expansion of the system and quality improvement; however, thelevel of public spending on education has never risen above 2% of GNP, withprimary education receiving a smaller share of the total education budget thansecondary and higher levels (Table 1.5). Although there has been substantialexpansion at all levels (see IBRD #2018-PAK, Table 15, p. 47), implementationhas generally been unsatisfactory (except under the Second Plan), and importantphysical targets remain, for example, in primary education where enrollmentshave consistently fallen below targets (Table 1.5).

Table 1.5: EDUCATION PLANS, TARGETS AND ACHIEVEMENTS AT THE PRIMARY LEVEL

East and West Pakistan West Pakistan OnlyInterim

Five-year plans: First Second Third Fourth 1-yr plan FifthEnding years: 1960 1965 1970 1975 1976 1983

Total Male Female

Allocation of educationalexpenditures by level (%)Primary 18 15 14 15 - 35Secondary 27 17 21 18 - 28Higher /a 37 39 46 45 - 25Total for 3 levels lb 82 71 81 78 - 88

Primary enrollmentTarget: No. (million) 5.3 7.2 13.1 - 6.8 8.6 5.9 2.7

% of age group 49 60 70 - 67 68 90 45

Achievements: No.(million) 4.7 7.2 9.4 - 5.0 Plan in progress% of age group 42 45 50 - 49

% of target enrollmentachieved 88 100 72 - 74

/a Higher refers to technical, college and university.

/b Remainder includes expenditures for education outside the three major levels,such as nonformal, special education, administration and scholarships.

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1.13 The education policy of 1972 increased the emphasis on primaryeducation; it set targets of universal education for boys by 1979 and forgirls by 1984, but enrollments did not grow to meet these goals (Table 1.5).The Fifth Plan for 1978-83 established targets of universal enrollment ofboys in grade 1 by 1982/83 and 90% enrollment in grades 1-5 by 1986/87;similar targets for girls were omitted, but the targeted 58% increase inenrollment over the five years demonstrates a clear intention to try toclose the enrollment gap between boys and girls. The need for "extraordinaryefforts," including compulsion, is mentioned. A similar policy was reiteratedin an interim plan issued in October 1978, and a target date of 1992 wasspecified for universal primary education for girls. While the share ofprimary education in education development expenditure was below plannedlevels (averaging 13.2% for 1972-77), its share in recurrent expendituresincreased from 30% to 45% between 1967 and 1977 and is projected to remain at37% during the next five years (Table 1.6). The Fifth Plan allocationsreflect this increased emphasis on primary education, with primary educationspending exceeding the levels for secondary and higher education for the firsttime (Table 1.5). Development expenditure for primary education is increased,but at the same time the ratio between recurrent and development expendituresis improved. A special provision of the Plan would prevent funds allocatedfor primary and secondary education from transfer to other levels. Thesecond focus of the Plan is consolidation and quality improvements at alllevels. Overall, the level of education spending under the Plan would riseto 3.7% of GNP. The targets are ambitious for enrollments, school facilities,supplies of instructional materials, particularly in view of past experiencein construction, cooperation from local communities and the low commitmentof primary school teachers.

Table 1.6: PRIMARY EDUCATION: SHARE OF TOTAL RECURRENT EXPENDITURES (%)

1947/48 1967/68 1972-77 1977/78 1982/83

Pakistan 41 30 45 39 37Median for all LDCs 50 45

Sources: Pakistan: 1947-68: 4FYP, p. 153; 1972-83: 5FYP, Table 1, p.4;App. I. Comparative Data: IBRD Comparative Education Indicators.

Bank Group Participation

1.14 Three IDA credits totalling US$27.5 million have been made tothe education sector in Pakistan. These projects were mainly (71%) directedto postsecondary and higher education, and almost entirely (98%) to agricul-tural, technical and teacher education. The first two education projects(Cr 50-PAK, 1964 and Cr 206-PAK, 1970) provided US$8.5 million and US$4million, respectively, to improve and expand postsecondary education (an agri-cultural university, industrial technician training and an engineeringcollege). The Third Education Project (Cr 678-PAK, 1977) is providing

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US$15 million to assist in expanding and improving: (a) middle and higherlevel agricultural education; and (b) general teacher training, particularlyin rural areas and among females. All three projects have had implementationproblems: shortages of local funds and problems with civil works contractorsdelayed the first two projects; and all three projects have had problems inutilization of technical assistance.

1.15 In addition to project activities the Bank has recently completedtwo major sector studies in education and related fields: The Educationchapter of the April 1978 Population Planning and Social Services Report(Report No. 2018-PAK) and the December 1978 Education Sector Memorandum(Report 2303-PAK).

1.16 The Government and IDA have shared three objectives in assistanceto education, namely, meeting manpower needs, improving quality and - morerecently - increasing equity (for rural population and among females). Thefirst objective, expansion of professional and technical education, waspursued through the First and Second Education Projects. The completionreport of the First Education Project concluded that the project was producingmanpower in excess of demand although project institutions operated at lessthan 60% capacity. Qualitatively, the investment in agricultural education(about 80% of the project) was successful, but little quality improvement tookplace in the technical institutes (20% of project total). The Second EducationProject appears to be successfully meeting manpower needs, but qualitativelythis project appears less successful: student/staff ratios are high, andstaff quality has been insufficiently improved. It is still too early todetermine the extent to which the objectives are being met in the ThirdEducation Project.

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2. ISSUES IN PRIMARY EDUCATION

Problems

2.01 Unequal Opportunity. During the period 1966-78, primary schoolenrollments expanded at an average annual rate of 4.8% to raise the overallenrollment ratio from 40% to 54%; however, substantial inequities in accessexist by sex and region (Table 2.1). The lack of educational opportunitiesfor girls is reflected in their low initial enrollment in primary schools(47% never enroll), and for rural people generally by the limited coverageof schooling in rural areas. Access is affected by the system of separateboys' and girls' schools outside most urban areas, which contributes tounequal school density (square miles per school) for males and females; forinstance, female density in Sind and Baluchistan is only about 20% of maledensity, and for the nation as a whole, it is only 45% (Table 2.1). Theunequal provision of facilities is reinforced by the unbalanced distributionof teachers, with a surplus of female teachers in some urban areas andshortages in neighboring rural schools.

Table 2.1: INDICATORS OF ACCESS TO PRIMARY SCHOOLSBY SEX AND PROVINCE, 1977/78

Fed.Punjab Sind Baluchistan NWFP Terr. Total

Enrollment ratios (%)Male 71 80 50 84 50 73Female 39 35 11 18 7 33

Total 56 59 32 52 30 54

Students per schoolMale 121 98 56 129 81 111Female 95 186 54 88 59 104

School density(sq mi per school)

Male 4 5 71 6 7 8Female 6+ 26 337 21 40 18

Male/Female (%) 62 20 21 30 18 45

Source: Fifth Five-Year Plan.

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2.02 Wastage. High dropout rates, contributing to overall low enrollmentlevels, show wide variation by sex. Between 1970 and 1975, about half thestudents who entered grade 1 dropped out before grade 5, ranging from45% of all students in Sind and Punjab to 64% in Baluchistan (and for girlsfrom 34% in Sind to 71% in Baluchistan). The highest dropout rate occurredbetween grades 1 and 2: 25% for boys and 40% for girls. Enrollment of boysin grade 1 in 1977/78 was actually above the total five-year old males (dueto overage students), while enrollment of girls in grade 1 was only 53% ofthe female population. In Baluchistan and NWFP less than a third of five-year old females were enrolled: 230 and 300 in 1,000, respectively. Higherdropout rates in the lower grades means that classes in the lower grades arelarge (50-60 pupils) and classes in the upper grades are small (10-20 pupils),which leads to inefficient use of teachers. Most of the enrollment growthexpected in the next decade due to reduced dropout could be covered by thepresent stock of teachers.

2.03 Low Quality. A critical factor in high dropout is the poor qualityof instruction and resulting low learning achievement. In many schools, thephysical conditions are so oppressive and discipline so harsh that attendanceis discouraged and dropout induced. High rates of teacher absenteeism, areflection of lax supervision, contribute to indifference among students.Teachers tend to be ineffective in covering the curriculum because they lackproper training (paras. 1.09-1.11) and have insufficient and inappropriateinstructional materials. An important deterrent to effective teaching insmall schools is the need for most instruction to take place in multigradeclass groups, since preservice training does not prepare teachers adequatelyfor this task. A conventional measure of school quality, the percentage ofteachers with less than full training (Table 2.2), indicates significantvariation by province and by sex. The consequences of poor quality togetherwith low enrollments and heavy dropout mean that primary education does notadequately provide general literacy for the coming generation and nearly halfof the money is spent on pupils who drop out before grade 4.

Table 2.2: PERCENTAGE OF UNTRAINED TEACHERS BY SEX AND PROVINCE, 1973/74

Punjab Sind Baluchistan NWFP

Male 13 15 20 16Female 16 40 42 36

Source: "Teacher Education in Pakistan." 1977, Table 6.

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2.04 Qualitative problems were summarized in a recent statement by theGovernment:

"About 60 percent of all primary schools in the country do not haveaccommodation which can meet the minimum requirements. There aremany schools which do not have any accommodation at all and functionin 'open air'. These schools continue to move from one location toanother in search of shelter against severe heat, cold and rain.Female teachers are in short supply in rural areas, and teacherabsenteeism is reported to be rampant. In many cases, teachers,particularly women, remain on the payroll of rural schools withoutever going there. Many female teachers do not stay in rural areasbecause of the feeling of insecurity caused by the lack of coveredaccommodation for the school. Thus, there are many schools whichremain without teachers and exist only in the official records.The administrative machinery, though fully aware of the situationin each area, does not adopt any corrective measures. Thesupervisory arrangements are not at all geared to offering anyassistance or guidance to teachers on educational matters.Instead, the supervision/inspection is law-and-order oriented andis generally carried out in response to local complaints. Becauseof poor means of communication, absence of reasonable facilitiesof travelling and preoccupation of supervisory staff with suchadministrative responsibilities as disbursement of salaries, nosystem of school supervision seems to exist and no one knows whatgoes on in most of the schools."/1

2.05 Financial Constraints. A program to improve and expand primaryeducation will clearly cost more. Although education is being given higherpriority under the Fifth Plan than in the past, government spending foreducation, particularly at the primary level, is low and compares poorly tospending in other developing countries (Table 1.6). A major aim of theFifth Plan (para 1.13) is universal primary education for boys by 1987, andunder an interim plan (para 1.13), 1992 was set as the target for univeralprimary education for girls. The budgetary allocation to primary educationhas therefore increased under the Fifth Plan from 15% to 35% of the totaleducational development budget (Table 1.5) , which should reverse the presenttrend of secondary and higher education expanding more rapidly than primaryeducation. External assistance is expected to play an important role inmaintaining the recently expressed focus on primary education. The statededucational objectives and priority, particularly to primary education withspecial emphasis on female participation, are sound (para 1.13). However, theachievement of targets depends on, inter alia, the Government's ability toresist socio-political pressure from middle and upper class families, whichunder previous plans resulted in funds allocated to the primary level beingused to expand postprimary education. The Fifth Plan document thereforespecifically prohibits transfer of the primary education budget to otheruses.

/1 The Fifth Five-Year Plan, para. 11, 1975.

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2.06 Even if sufficient development funds were provided for primaryeducation, provincial governments might not be able to mobilize the resourcesneeded to hire and pay additional teachers and to maintain facilities. Forexample, universal primary education of boys and 80% enrollment of girls by2000 /1 would involve an enrollment of 20 million children, a fourfoldincrease over the present 5 million. Resources available to meet this needwill also grow but almost certainly at a lower rate than enrollment. Thuswithout a significant change in the methods of delivery of primary education,costs would increase directly in proportion to enrollment, would consume alarger share of GNP, and would still not produce student output with literacy,numeracy or other attributes needed for development of the nation.

Causes

2.07 The causes of inequitable access, high dropout and poor qualityare complex. They involve multiple economic, social and educational factorswhich are interrelated.

2.08 Economic. Opportunity costs are a major factor in nonenrollmentand especially in dropout. Child labor is prevalent among poor families andincludes such tasks as working in the fields, drawing water, or attendingother children in the home. School and crop calendars are not well synchro-nized, and a child who has to work in the fields may fall so far behind inhis classwork that he drops out of school entirely. The direct cost ofattendance is another cause of dropout, especially for children from large,poor families; although textbooks are relatively inexpensive, four books areneeded per year, and they often wear out and need to be replaced beforethe school year is over.

2.09 Low levels of expenditure on primary education also contribute tolow enrollment and poor quality. Many areas do not have the buildingsnecessary for organized teaching, but the shortage of teachers in rural areasis an even more serious problem. Teachers, particularly females, often preferto remain unemployed in urban areas than to accept a rural position because oflow salaries, lack of allowances and promotion possibilities, and inadequatehousing in rural areas. In addition, inadequate spending on textbooks meansthat most schools lack needed teaching materials./2

2.10 Socio-cultural. Lack of parental support for primary education isanother major reason for nonattendance in rural areas. Traditional parentalattitudes favor protecting and educating girls at home, and the conceptof schooling in a nonreligious setting (compared with the orthodox view ofeducation by the Imam in a mosque) has not yet been fully accepted in manyrural areas. Virtually all decisions about the school (e.g., location andappointment of teachers) are made without local participation adding to

/1 Much less optimistic than the government targets (para. 2.05).

/2 Studies in other Asian countries point to availability of teachingmaterials as a crucial determinant of learning achievement.

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parents' impressions of impotence in matters of village school management.Moreover, the schools tend to be set apart from the local culture and thecontent of teaching programs is frequently irrelevant to the local environment.Some parents believe there is little monetary gain or social prestige attachedto completion of primary school if it is not followed by attendance in middleschool. The low priority given to primary education by the Government in thepast helps confirm this attitude.

2.11 Educational. Reference has already been made to several educationalfactors involved in low quality and attendance, viz. lack of teachers in ruralareas and inadequate supplies of teaching materials (paras. 2.03-2.04). Thequality of teaching is also an important factor in educational attainment.Most teachers have received preservice training, but this deals with generalpedagogical principles rather than problems of teaching in local schools.Teachers receive virtually no professional support from the education system(paras. 1.09-1.11). Supervisors seldom visit primary schools and insteaddeal almost exclusively with the secondary level and general administrativematters (para. 1.08).

A Strategy for Primary Education

2.12 A strategy is needed for primary education to overcome the causes ofinequitable access, low enrollments and poor quality. Since the causes arecomplex, the strategy to overcome them is necessarily complex. Moreover,since conditions vary among provinces, different strategies should be developedto take local conditions into account. The following paragraphs broadlyoutline the four possible components of a strategy to improve and expand ruraleducation at the primary level.

2.13 Equal Opportunity. To improve enrollment coverage at feasible costin rural areas, particularly for girls, the Government should:

(a) undertake a program to increase the supply of teachers in ruralareas through such measures as:

(i) adjusting salary scales for teachers in rural areas;(ii) introducing allowances for "hardship" or transportation;(iii) modifying the career system to give experienced teachers

opportunities for supervisory jobs;(iv) recruiting less qualified village women as teacher assistants

in areas without teachers, and providing in-service training;and

(v) providing housing accommodations for females;

(b) provide school facilities at appropriate locations determinedthrough systematic school mapping, and involve local communities inschool building and maintenance.

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2.14 Wastage. To increase at feasible costs the proportion of grade 5completion among students who enroll initially in grade 1, the Government should:

(a) introduce additional supervision at the local level;

(b) encourage parental involvement in school management;

(c) adapt the school calendar to cropping patterns;

(d) experiment with providing direct incentives for attendance, suchas free textbooks and meals; and

(e) introduce education and orientation programs for parents toreduce the discontinuity between school and home.

2.15 Quality. To improve the attainment of basic education skills atfeasible costs, the Government should:

(a) provide systematic professional support for teachers, includingregular in-service training and supervision;

(b) provide effective administrative control to reduce absenteeismof teachers and pupils;

(c) increase the supply of teaching materials for students and experi-ment with self-instructional materials;

(d) introduce simple formative evaluation of student progress;

(e) develop a bilingual curriculum using the local language as themedium of instruction during the first three grades; and

(f) adapt curricula to local environments, by developing programs of amore practical nature that emphasize local needs and use localresources.

2.16 Costs. The purpose of these strategies is to improve and expandprimary education without creating expenditures that cannot be met by thefederal and provincial authorities. Since teacher salaries constitute themajor part of recurrent primary education expenditures (over 98%), thefinancial feasibility of the overall strategy depends mainly on reducing thecosts of teacher salary per student. Three approaches are possible:(a) increasing the number of students taught per teacher, by increasingclass sizes or the number of class groups handled by each teacher;/l

/1 Research in other Asian countries suggests that marginal increases inclass size do not appear to affect achievement adversely.

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(b) reducing salaries by recruiting less qualified teachers at lower ratesof pay; and (c) moving toward larger schools to increase economies of scaleand reduce the need for multiple grade teaching. These measures could beaccompanied by steps to develop self-instructional materials and provideteachers with multi-class teaching techniques. The Government could alsoexperiment with ways of reducing capital costs by constructing schools inareas of low school density (Table 2.1) and adding classrooms to existingschools in other areas. At present, the cost of constructing primary schoolfacilities alone would prohibit any significant expansion in the number ofschools. Low cost schools could be constructed using local materials andcommunity self-help in constructing and maintaining buildings. Systematicschool mapping could also reduce the buildings required to cover a givenpopulation. Together these approaches could help to reduce substantially thetotal cost of a primary school building program.

2.17 Expenditures to increase the quality of instruction could contri-bute indirectly (through reduced wastage) to a lower cost per graduate. Ahigher quality of instruction and increased local supervision would presumablylead to a lower dropout rate, which would result in better utilization ofexisting (teacher and building) resources and in fewer student-years ofinstruction per graduate. Expenditures on management and supervision couldalso contribute to improved quality through better teaching.

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3. THE PROJECT

Objectives

3.01 The above overall strategy could be accomplished only in the longterm and implementation should therefore be phased. The proposed projectwould constitute the first phase, namely experimentation to determine thebest way of overcoming the major problems in primary education (paras. 2.01-2.06). The proposed project would include the principal elements of theprimary education strategy (paras. 2.12-2.17), and analysis of results shouldindicate which combinations of factors could be used most effectively on anational scale; however, restrictions on implementation capacity and financialresources and a need to keep the project at a manageable dimension do notpermit inclusion of all items listed./l The proposed project would pursuefour major objectives:

(a) increased access to primary schools, especially for girls and forrural poverty groups; this would be sought by (i) providing schoolfacilities and materials; (ii) providing more female teachers; and(iii) enhanced supervision intended to improve school-publicrelations and overcome parental indifference to enrollment;

(b) reduced wastage, principally by reducing dropout and repetition,through improved facilities, materials and instruction, and super-vision (to reduce teacher absenteeism), and by working withparents and community leaders to avert dropout;

(c) improved quality of instruction to attain higher and more lastingpupil achievement through (i) recurrent in-service teacher trainingin methods of teaching and classroom management designed to makebetter use of school time, and (ii) local, more frequent supervision.

(d) reduced costs by reducing wastage inherent in dropout, introducinglower cost teachers, and moving toward larger class and school sizes.

The project proposes a limited approach to these objectives: coverage islow enough to avoid large-scale investment in unproved approaches, yet largeenough to provide statistically significant experimentation and research.The project would foster the development of local research capability byextensive involvement of local staff as project researchers in the experimen-tation and evaluation aspects of the project. Special training would beprovided for this purpose. Local staff of universities and Institutes ofEducational Research would thus gain expertise and experience to enable themto implement subsequent phases of a long-term improvement program.

/1 Certain elements of the overall strategy (para. 2.13-2.15) were omittedto avoid undue risks, limit project dimensions and improve implementation;these include salary adjustments, school meals, bilingual curricula andself-help construction.

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Content, Scope and Sequence

3.02 To attain its objectives, the proposed project would provideassistance to the central and provincial governments in four componentsto:

- strengthen the teacher service,- expand supervision,- improve instructional materials, and- provide physical facilities.

The most important elements in the project are teacher training and super-vision. Intensive and recurrent in-service training would be providedthroughout the project period based on the hypothesis that more frequent andmore practical training would improve teaching effectiveness. Improvedsupervision of primary schools and staff would be provided through theintroduction of new primary school supervisors at two levels (supervisors andlearning coordinators) below the district unit of government. This approachis based on the hypothesis that closer and more active supervision wouldresult in less teacher absenteeism, improved teacher performance, and closerrelationships among schools, parents and community. Additionally, theproject would experiment with inter alia lower cost, locally recruited'lassistant teachers"/l willing to serve in rural areas, larger class andschool sizes, and low cost building design to control costs and performance;provision of instructional materials as a means of raising pupil achievement;and improved school-community-parent relationships to increase enrollment andreduce dropouts.

3.03 Overall, this first phase project would include more than 4,000schools, nearly 10,000 teachers, and over 380,000 presently enrolled studentsand about 400,000 children who are not now enrolled, of whom over 70% arefemales. The project would be limited to rural areas; it would cover 7-8% ofthe nation's primary schools, teachers and enrolled children (Table 3.1 andMap IBRD 14055). However, the scope of project content and coverage woulddiffer by province in order to: (a) concentrate project activities in thetwo most disadvantaged provinces in terms of opportunities for girls (Baluchi-stan and NWFP); and (b) provide for varying approaches to the components tobe tested. Higher coverage in Baluchistan and NWFP would be necessary toassure adequate numbers of schools and teachers of both sexes for statisti-cally significant experimentation, to provide greater equity in distributionof educational resources and to permit the project to cover entire politicalsubdivisions.

/1 The term "assistant teacher" was chosen by the Government to denote aless qualified person not fully entitled to the designation of teacher.However, the performance of such personnel is often superior to that of"regular" teachers, because assistants are employed nearer home, havebetter rapport with pupils and parents and understanding of local needsand tradition, and are more appreciative of a chance for cash employment.

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Table 3.1: COVERAGE OF THE PROJECT BY SEX AND PROVINCE, 1977/78

In Project Percentage of Total System CoveredPunjab Sind Bal. NWFP Total Punjab Sind Bal. NWFP Total

Districts 10 8 4 4 26 45 73 29 33 44

Pupils ('000)Male 120 20 28 100 268 5 2 26 17 7Female 60 20 7 25 112 5 5 32 20 7Total 180 40 35 125 380 5 3 27 17 7

SchoolsBoys' 1,200 200 477 855 2,732 6 2 26 18 8Girls' 600 200 171 395 1,366 5 10 39 28 8Total 1,800 400 648 1,250 4,098 6 3 28 21 8

TeachersMale 3,000 600 876 2,400 6,876 6 2 34 28 8Female 1,500 600 324 600 3,024 6 6 65 20 8Total 4,500 1,200 1,200 3,000 9,900 6 3 39 26 8

Sources: Total enrollment and number of schools on which percentages arebased are from Fifth Five-Year Plan, 1977/78. Number of teachersestimated from 1975/76 data.

3.04 The project would be divided into three periods:

(a) Preparatory. A period of about 20 months devoted primarily toselection and training of personnel, construction of physicalfacilities, and design of experiments.

(b) Experimental School Years. Three school years beginning in Marchof 1981, 1982 and 1983 in which the impact of the project componentswould be measured and evaluated.

(c) Analysis of Results. A follow-up period of six to nine months inwhich final experimental results would be analyzed and conclusionsreached.

Project Components

Teacher Service (Proposed Outlay: US$4.6 million equivalent) /1

3.05 The proposed project would strengthen the teacher service by addinga new category of assistant teacher and providing a new pattern of in-service

/1 This and subsequent statements of proposed outlays, exclude contingencies.Costs of experiments, transport, training, experts and salaries dividedproportionately between the teacher service and supervision components(see Table 4.2).

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teacher training. Assistance to the teacher service would be the largestproject component in terms of number of participants -*d *ci a and the oneconsidered most critical to achieving project objectives.

3.06 Assistant Teachers. The project would finance the salaries of 340assistant teachers, recruited to teach in schools near their homes (often inthe same village) to avoid housing problems. At least 190 (56%) would befemale. They would have completed grade 8 or have acquired the equivalentachievement through independent study or experience. The assistant teacherpositions would be created as a means of utilizing unemployed rural personswho would be familiar with the community and could teach near their homes; theuse of these less qualified teaching staff represents a promising cost reducingfactor and a means of supplying female teachers in rural areas. Specialpreservice training and recurrent in-service training would be provided.

3.07 In-Service Teacher Training. Two major improvements in in-servicetraining of teachers are foreseen under the proposed project: (a) pattern:more frequent training (para. 3.08), and (b) content: more attention toteaching methods, classroom management and parent and community relations(para. 3.09). Training costs, and travel and subsistence allowances ofteacher trainees would be financed under the project. A total of over 10,000teachers and assistant teachers would receive training, divided among theprovinces as follows:

Numbers of Teachers %Punjab Sind Baluchistan NWFP Total female

Existing teachers 4,500 1,200 1,200 3,000 9,900 31Assistant teachers 100 100 100 40 340 56

3.08 A new pattern of training would be established to alleviate problemscaused by the present inadequate pre- and in-service teacher training (paras. 1.11-1.13). During the four project years, recurrent training would be provided asfollows:

(a) Annually: each teacher and assistant teacher would receive 2-3weeks each year of intensive resident training on general topicsconducted by project trainers (para. 3.18); and

(b) Alternate Months: each teacher and assistant teacher would receive2-3 days of training on common teaching problems organized bylocally based supervisors (para. 3.13).

3.09 The training content would concentrate on subjects that are importantto learning achievement, but are neglected in present preservice training,including (a) practical methods of teaching each major subject; (b) under-standing of the ways children learn; (c) effective management of multigradeclasses; (d) parent and community relationships; and (e) ways to adapt thecurriculum to the social and physical environment of the pupil. The trainingwould include ways to instruct without resorting to harsh discipline and waysto deal effectively with parents and community leaders.

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Supervision (Proposed Outlay: US$2.5 million equivalent)

3.10 The present system lacks adequate supervision at and below thedistrict level, resulting in low teacher morale and performance, and a highlevel of absenteeism. The proposed project would aim to extend the system ofsupervision below the district level and would add new supervisory personnel.The proposed project would finance salaries and transport for new staff andtraining for all supervisory staff in the project areas.

3.11 The project would introduce supervision for primary schools belowthe district level of government by creating and providing salaries for two newposts, supervisor and learning coordinator, as follows:

Present Pattern Proposed Pattern

I District Education Officer I I District Education Officer I

I Assistant Education Officerl I Assistant Education Officerl

I Supervisor

I Learning Coordinator I

I Primary School I I Primary School I

Ratios of new supervisory staff to schools would differ among the provinces:

Table 3.2: RELATIONSHIPS AMONG SCHOOLS, SUPERVISORS ANDLEARNING COORDINATORS, BY SEX AND PROVINCE

Punjab Sind Baluchistan NWFPMale Female Male Female Male Female Male Female

Number of:Supervisors 20 10 4 4 0 0 8 5Learning coordi-nators (LCs) 200 100 20 20 40 23 40 23

Schools 1,200 600 200 200 477 171 855 395

Ratios:LCs per supervisor 10 10 5 5 - - 5 4+Schools per LC 6 6 10 10 12 14 21 17Schools per super-visor 60 60 50 50 - - 107 79

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These provincial differences would be used to measure the extent of coveragepossible under varying population densities. The new supervisory positions,coupled with the position of assistant teacher, would create a five-stepcareer ladder in primary education: assistant teacher, teacher, headmaster,learning coordinator and supervisor.

3.12 The new position of supervisor would be created in three /1 of thefour provinces, and of learning coordinator in all provinces. Unlike theexisting inspectorate, the work of staff in these new positions would beexclusively devoted to the primary level. Qualifications for supervisorswould be five years' experience as a successful primary teacher and evidenceof the leadership and counselling potential demanded by the position. Learningcoordinators would be recruited among teachers with at least two years ofsuccessful teaching in primary schools who live in the immediate vicinity.

3.13 Learning coordinators would contribute to various aspects of theeducational process and would be guided and assisted by the supervisors. Theywould support teaching staff, both by providing helpful supervision, and byorganizing and conducting recurrent in-service teacher training. They wouldalso provide classroom support by helping to develop teaching aids and byevaluating student achievement. Another function, to expand enrollment andimprove attendance, would be achieved through individual counselling ofchildren and parents, as well as through parental meetings that stress thevalue of school attendance. In a wider context, the learning coordinatorswould encourage community involvement by identifying ways in which the schoolcould interact more effectively with the community, by conducting adultevening classes, and by initiating community self-help programs in education.The supervisors would support these efforts, and in addition would organizeand conduct group training for learning coordinators and teachers, and providea link between the new supervisory staff and existing officials.

3.14 The project would train all supervisory staff at and below thedistrict level in counselling techniques, personnel leadership, teacherin-service training, and parent and community relationships (paras 3.17-3.19).

Instructional Materials and Curricula (Proposed Outlay: US$1.1 million equivalent)

3.15 The project would provide financing for textbooks, teachers' guides,library books, and school and classroom equipment for project schools, asfollows:

/1 In Baluchistan, AEOs would be trained to perform the tasks of supervisors.

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Books (for all provinces unless otherwise shown) Approx. Number

Sets of textbooks for all project teachers 10,200Sets of teachers' guides for all project schools 4,100Textbooks for pupilsBaluchistan: set for each pupil, new set

each of three years (35,000 x 3) 105,000NWFP: set for 10% of pupils, one year only 12,500

Library sets for each project school for supple-mentary reading 4,100

Equipment Approx. Number

Standard set of general, agricultural, sportsand social studies equipment 4,100

Equipment for in-service training facilities 10

This component would also include technical assistance and training to developnew and additional materials for trial in schools. Attention would also begiven to modification of curricula in accord with local and provincial needsand culture (para. 2.12).

Physical Facilities (Proposed Outlay: US$5.3 million equivalent)

3.16 The project would finance construction and furniture for classrooms,residences for female teachers, and small resource centers for in-serviceteacher education, as follows:

Table 3.3: PHYSICAL FACILITIES BY SEX AND PROVINCE

In-ServiceHousing for Training Center

Classrooms female teachers (number)Province Male Female Total (pairs of quarters) Male Female

Punjab 200 100 300 200 - -

Sind 200 200 400 50 4 4Baluchistan 20 44 64 18 1 1NWFP 60 190 250 20 - -

Total 480 534 1,014 288 5 5

Most classroom construction would be additions to existing schools rather thancreation of new schools to achieve larger school size (para. 2.01). Theseproject facilities would vary within each province to permit testing of enroll-ment, dropout and learning achievements under different conditions. Thegeneral impact of the construction component would be assessed by the effectof improved facilities on pupil enrollment, retention and achievement; onteacher attendance, performance and job satisfaction; and on community pridein schools under the experimentation program.

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Staff Development and Research

Training

3.17 The successful implementation of the four project components woulddepend largely on training received by project personnel. An extensivetraining program has therefore been developed to cover eight categories ofpersonnel (Table 3.4).

Table 3.4: NUMBER OF PERSONNEL REQUIRING TRAINING, BY SEX

Category Male Female Total

Project staff /a 22 8 30Researcher 30 10 40Project trainer 160 60 220District EducationalAdministrator (DEO, AEO) 60 20 80

Supervisor 30 20 50Learning coordinator 300 170 470Teacher 6,900 3,000 9,900Assistant teacher 150 190 340

Total 7,652 3,478 11,130

/a Para. 4.10 f.f.

Training Method and Duration

3.18 The training program would be comprised of the following segments:

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Table 3.5: CONTENT, NUMBER OF TRAINEES, LOCALE AND TIMINGFOR SEGMENTS OF TRAINING

Group or Approx. no. Durationsegment Content of trainees Locale (months)

A Training of selected 40 Overseas & 3trainers, administrative nationalstaff and researchers

B Training of remainder of 260 National 3project trainers, adminis-trative staff and researchers

C-1 Training of supervisors 10,800 Provincialand teachers before and district 8project begins in schools

C-2 Recurrent training 10,800 Districtduring experimental and below 36school years ofsupervisors and teachers

A cadre of about 220 male and female trainers recruited from teacher traininginstitutes, high schools with teacher training sections, colleges and univer-sities, would comprise the major staff resource for the training program.About one-tenth of the project trainers would receive intensive local andoverseas training (as part of segment A) to enable them to instruct thecomplement of the project trainers (under segment B). The project trainerswould conduct initial training for all remaining project personnel (segmentC-1) before the start of the first experimental school year (March 1981).Recurrent training (segment C-2) would be provided for teachers (para. 3.08)and supervisors during the three experimental school years. During thisperiod, semi-annual or annual project seminars would continue the training ofhigher level and more specialized project personnel. Under the project,technical assistance would be provided to support the project trainers;project assistance would finance part of the trainers' salaries, as well astravel and per diem allowances.

3.19 Overseas training would be provided under segment A to allow keypersonnel to gain firsthand knowledge of successful primary systems elsewherewith special attention to curriculum development, teaching children fromunderprivileged homes in small schools with multigraded classes and interactionof teachers and supervisors in rural settings. The overseas training wouldtake place in both developed and developing countries to promote observationof a wide range of approaches. These staff would then adapt effective practices

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to needs in Pakistan and would promote their use in the subsequent trainingsegments. Suitable composition of this group would thus be critical to thesuccess of the training and therefore of the project. The following categoriesof personnel would be included in segment A:

Table 3.6: COMPOSITION OF THE "SEGMENT A' GROUP SELECTED FOR TRAINING

Category Approx. no. Rationale

Project staff 6 Directors of Training (1 Fed, 4 Prov)District administrators 4 Familiarization with training (1 each prov)

Involvement in training (1 each prov)Project trainers 25 1 in each major subject (language, math,

science and social studies) from eachprovince + reserve for specialties

Researchers 5 Future research in training

Total 40

The target female participation in this group would be at least 20%. Othercriteria for selection would include: knowledge of and experience in theprimary level of education; training experience; and facility in English.

Experimentation and Evaluation

3.20 The central purpose of the proposed project is experimentation intothe contribution of selected inputs to achievement of project objectives. Ofparticular importance are solutions to persistent problems in primary educationin five areas: recruitment and retention of female teachers in rural areas;teacher absenteeism; teaching effectiveness; school, parent and communityrelations; and recurrent costs. The project would permit experimentationin each of these areas to answer the following five questions:

(a) whether (i) provision of female teacher residences, and (ii)establishment of assistant teachers can aid recruitment of femaleteachers;

(b) whether increased training of teachers results in improved pupilachievement;

(c) whether improved supervision reduces teacher absenteeism;

(d) whether increased contact between parents and teachers results ingreater enrollment and less dropout (especially of girls); and

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(e) whether per student costs can be reduced through use of teacherassistants and movement toward larger class and school sizes(para. 5.04).

3.21 Measurements to answer these questions can be divided into fourcategories:

(a) data on population, enrollment, pupil and teacher attendance,dropouts and repetitions secured from schools through managementchannels and school mapping capability;

(b) benchmark tests of pupil achievement and attitude, and tests ofteacher knowledge and competence;

(c) measures of perceptions and attitudes of parents and communitymembers on education and schools; and

(d) cost data (national, provincial and by district and school).

In almost all cases the school would be the unit of measurement, but datacould be aggregated to produce figures for tehsils and districts. Controlschools (and perhaps tehsils) would be used for comparative purposes. Duringnegotiations the Government provided assurances that it would prepare andsend to IDA for comment (a) before the start of the first experimental schoolyear a report on baseline measurements and results achieved; (b) detailedannual reports on results of project experimentation within four months ofthe end of each experimental school year; and (c) at the end of the secondexperimental school year a draft comprehensive proposal for the expansionand improvement of primary education based on the tentative results of theproject.

Technical Assistance and Studies

3.22 Technical assistance would be required for two project elements:(a) planning and organization of training, and (b) experimentation andevaluation. Altogether the technical assistance would include: (a) about12 man-years of expatriate specialist services; and (b) about 50 man-yearsof local consultant services. The technical assistance would be divided intotwo phases. The first phase would include services required before thestart of the first experimental school year (March 1981) and the second phasewould comprise the remainder to the end of the project period (September 1984).To avoid delays experienced in earlier education projects, signing of a contractfor first phase technical assistance would be a condition of effectiveness andsigning of contract(s) for second phase specialist services would be concludedby December 31, 1980. Advisors in training and experimentation would work inteams to provide continuing assistance to lDcal staff. The majority of localtechnical assistance would be in experimentaLion and would involve staff ofuniversities and education research institutes serving as project researchers.Some local technical assistance would be made available for planning andadministration of training. Funds earmarked for the preparation of futureeducation projects (US$0.3 million) would also be included in the project.

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4. PROJECT COSTS, FINANCING IMPLEMENTATION AND DISBURSEMENTS

Cost of the Project

4.01 The estimated costs and foreign exchange component of the projectare summarized in the following tables. Detailed estimates are given in theworking papers.

Table 4.1: SUMMARY OF PROJECT COSTS BY PROVINCE

Local Foreign Total Local Foreign TotalProvince ---- (PRs millions) --- ---- (US$ millions) ---

Punjab 33.3 7.8 41.1 3.4 0.8 4.1Sind 20.5 7.5 28.1 2.1 0.8 2.8Baluchistan 10.7 6.1 16.8 1.1 0.6 1.7NWFP 15.5 5.6 21.1 1.6 0.6 2.1Countrywide project

items 7.2 11.7 19.0 0.7 1.2 1.9Preparation offuture projects 0.5 2.5 3.0 - 0.3 0.3

Baseline costs: 87.7 41.3 129.0 8.9 4.2 13.0

Contingencies:Physical 4.3 2.0 6.3 0.4 0.2 0.6Price 25.1 9.9 34.9 2.6 1.0 3.6

Subtotal 29.4 11.9 41.2 3.0 1.2 4.2

Total Project Costs: 117.1 53.2 170.3 11.8 5.4 17.2

Note: Totals do not always equal sum of detailed figures due to rounding.

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Table 4.2: SUMMARY OF PROJECT COSTS BY CATEGORY OF EXPENDITURE

Local Foreign Total Local Foreign Total---- (PRs millions) --- ---- (US$ millions) ---

Physical StructuresFurniture 2.8 1.2 4.0 0.3 0.1 0.4Buildings 38.9 9.7 48.6 3.9 1.0 4.9Design services 0.8 0.1 0.9 0.1 0.0 0.1

Subtotal 42.5 11.0 53.5 4.3 1.1 5.4

Learning MaterialsEquipment 2.7 4.5 7.2 0.3 0.5 0.7Books 1.6 2.4 4.0 0.2 0.2 0.4

Subtotal 4.3 6.9 11.2 0.5 0.7 1.1

OtherExperiments 1.0 1.0 2.0 0.1 0.1 0.2Transport 1.4 7.9 9.3 0.1 0.8 0.9Training 11.1 3.8 14.9 1.1 0.4 1.5Consultants 1.9 10.8 12.7 0.2 1.1 1.3Salaries 25.5 0.0 25.5 2.6 0.0 2.6

Subtotal 40.9 23.5 64.4 4.1 2.4 6.5

Baseline costs: 87.7 41.3 129.0 8.9 4.2 13.0

Contingencies: 29.4 11.9 41.2 3.0 1.2 4.2

Total Project Cost: 117.1 53.2 170.3 11.8 5.4 17.2

Less customs dutiesand taxes: 0.6 0.6

Total Net Project Cost: 11.2 16.6

Note: Totals do not always equal sum of detailed figures due to rounding.

About 64% of the physical structures and learning materials would be for class-rooms; 26% for residences; and the remaining 10% for resource centers.

4.02 Base Cost Estimates refer to February 1979 prices. Constructioncosts have been estimated on the basis of a detailed breakdown of Bills ofQuantities for functional and simple buildings. Base costs range fromUS$6.5/sq ft for classrooms to US$13.00/sq ft (including site development)for the in-service training centers. Preliminary furniture and equipmentlists and allocations for books have been prepared for the project. Thesewere reviewed during negotiations and are reasonable in scope and costs.

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Consultants' costs are estimated at US$75,000 per man-year for foreignconsultants and US$6,000/man-year for local experts. Training cost estimatesare based on detailed breakdowns of training requirements. Architecturaldesign services are estimated at about 2% of construction cost. Cost ofsalaries is based on applicable Government scales of salaries plus allowances(range: $360-$5,500 per man-year).

4.03 Cost Per Pupil Place. Unit costs of facilities (net of professionalservices and contingencies) are shown in the following table:

Table 4.3: AREA AND COST PER PLACE

Gross area (sq ft) Cost in US$ per unitPrimary Bank median (74-77) Boundary Furni- Equipt.schools for primary schools walls Bldgs. ture & books Total

Classrooms 10.0 17.7 4 70 3 29 106

Housing 365 1,060 /a - 2,580 310 - 2,890

Teacher hostels 300 n.a. - 2,880 345 - 3,225

/a Refers to housing for any kind of teaching institution.

The small area per pupil place is feasible because children normally sit onfloor mats. As a result unit costs are low in comparison with other Bank-financed projects (median value for 1974-77 primary education projects:US$2231 pupil place). Furniture would only be provided in classroomsfor adult group use in the Punjab. Housing and teacher hostels would beprovided for female teachers in remote rural areas.

4.04 Estimated project costs include the following contingency allowances:

(a) physical contingencies (US$0.6 million) estimated at 5% of basecost for unforseen factors; and

(b) price contingencies (US$3.6 million) calculated on the base costplus physical contingencies. These are based on the assumptionthat construction and procurement would start in March 1979 andtake about 24 months, and local annual incremental cost through 1981would be about 11%. Foreign annual incremental cost would be about8% for construction and furniture and 7-1/2% for equipment andtechnical assistance.

4.05 The foreign exchange component is estimated at about US$5.4 mil-lion or about 31% of total project costs. This overall foreign exchange costwas derived from an analysis of the labor, materials and overhead contents of

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civil works; estimation of the amount of equipment imported from overseas;and the foreign content of technical assistance. The resultant percentagesamount to about 20% for civil works, 29% for furniture, 60% for equipment andbooks, 85% for transport, 85% for consultant services, 25% for training, 10%for design services, and zero for local salaries and honoraria for localexperts.

4.06 Duties and Taxes. The local customs duties and taxes on civilworks and locally procured furniture and equipment would amount to US$0.6 mil-lion or about 10% of the estimated cost of these items including contingencies.No customs duties are levied on directly imported educational equipment.

Project Financing

4.07 The total project cost of US$17.2 million would be financed as follows:

(a) the proposed IDA credit of US$10.0 million (60% of the totalproject cost net of taxes) would meet 100% of the foreign exchangecosts and 39% of local costs;

(b) the Government would finance the remaining costs of US$7.2 million.

The pivot of the success of this project is the development of: (a) afunctional primary education supervision network (para. 3.10-3.14); and (b)appropriate teaching staff for remote areas and for girls' education (para.3.05-3.09). Therefore the project would finance 100% of training costsand salaries for three types of new posts (assistant teachers, learningcoordinators and supervisors), which currently do not exist in the educationsystem. Necessary salary structure revisions are expected to be carried outduring the project period to permit the posts to become permanent features ofthe education system upon successful completion of the project. Details ofthe financial plan are given in Table 4.4. Local project cost financingwould cover US$2.1 million for salaries and allowances, US$0.1 millionfor professional services related to civil works, US$1.8 million for technicalassistance and experiments, and US$0.6 million for contingency allowances.

Implementation

4.08 Administration. The first two IDA-financed projects in Pakistan(Credits 50-PAK and 206-PAK) suffered implementation delays of about eightand 3.5 years, respectively. Efforts in the Third Education Project(Credit 678-PAK) to strengthen implementation capacity and to avoid repe-tition of earlier delays have been partially successful: (i) revolving fundssimilar to the one established under the second education project (Cr. 206-PAK)were established to avoid delays caused by rupee shortages; (ii) the projectdirector's training in a Bank-sponsored implementation seminar helped avoiddelays caused under earlier projects by staff's unfamiliarity with IDA proce-dures; (iii) specific personnel in existing line agencies in two provinces wasassigned to implement the project and provincial project implementation unitswere created in the other two provinces to coordinate project activitieswithin each province; (iv) a Federal Project Coordinating Unit with linkages

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Table 4.4: FINANCIAL PLAN

Government ofItem Pakistan IDA Total

----------- (US$ million) ---

(a) Civil works and furniture 5.2 1.8 7.0(b) Related professional services - 0.1 0.1

Equipment, transport and books(including those for the project unit) 1.1 1.4 2.5

Technical assistance:(a) Consultant services (incl. honoraria) - 1.5 1.5(b) Training (local and overseas) - 1.9 1.9

Salaries of project personnel 0.5 2.8 3.3

Subtotal 6.8 9.5 0.9

Unallocated 0.4 0.5 0.9

Total 7.2 10.0 17.2

Less duties and taxes 0.6 - 0.6

Net project cost 6.6 10.0 16.6

to the Bureau of Educational Planning (BEP) was established to coordinate allaspects of the project; and (v) in an effort to avoid repetition of earlierdelays experienced in the hiring of technical assistance, the signing oftechnical assistance contracts was made a condition of withdrawals for por-tions of the project. Despite the five month implementation delay experiencedunder the Third Education Project (Credit 678-PAK), there are indicationsthat the above measures are helping to prevent problems experienced under thetwo first projects.

4.09 The proposed project would seek to build a permanent implementationcapacity within the primary education subsector. At the federal level theBEP would be strengthened as follows: (a) the Director would assume overallproject implementation responsibility; and (b) the BEP staff would be strength-ened with the introduction of the following training evaluation and researchpersonnel: (i) three deputies in charge of training, research and operations;(ii) a director of works; (iii) an information officer; (iv) an accountant;and (v) four research officers. The BEP would work in close collaborationwith the unit in charge of Credit 678-PAK and the services of a project archi-tect and a procurement officer would be shared between the two organizations.

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The strengthened BEP would be responsible for coordinating the activities ofall government agencies involved in this project and would implement futureprojects planned by the BEP. Its functions would, in particular, include thefollowing:

(a) coordination of the provincial project unit activities;

(b) assistance to the provinces in designing, implementing and evaluat-ing training, research and experiments;

(c) recruitment of specialists and administration of technical assist-ance agreements;

(d) intensive information program aimed at disseminating projectaccomplishments outside and within the project;

(e) supply of expertise to the provinces in experimental low costschool construction;

(f) procurement under international competitive bidding (ICB) proceduresand coordination of local procurement;

(g) provision of timely and adequate flow of funds from the center tothe provinces;

(h) communications between the International Development Association(IDA) and the provincial units; and

(i) preparation of claims for disbursements from the proceeds of theproposed credit and periodic reporting to IDA.

4.10 At the provincial level the proposed project would seek to streng-then implementation capacity with particular reference to training,research and evaluation activities. The provincial departments of educationwould be strengthened through the appointment of the following senior andprofessional implementation personnel (Table 4.5)/1:

/1 See working papers for detailed job descriptions and organization charts.

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Table 4.5: PROVINCIAL IMPLEMENTATION STAFFING PLAN /a

Senior Staff (SS) and Professional Staff (PS)Area of

responsibility Punjab Sind Baluchistan NWFP TotalSS PS SS PS SS PS SS PS SS PS

Director 1 1 1 1 4

Deputy 1 1 2Training, Research &Evaluation 1 4 1 2 2 2 2 10

Architect 1 1

Total 2 4 3 2 2 2 2 2 9 10

/a See working papers for detailed job descriptions and organization charts.

These staff would be located at the provincial capitals and have close liaisonwith the planning wings of each Department of Education. Generally, the fourprovincial planning units would: (a) organize selection of field personnel,(assistant teachers, teachers, learning coordinators and supervisors); (b)conduct pre- and in-service training courses; (c) organize (in collaborationwith the FPU) all activities related to educational research, evaluation andexperimentation; and (d) be responsible for procurement of civil works, localprocurement of furniture and equipment and provision of architectural services.Accumulation of project implementation capacity is an important objective ofthe project and the provincial project units would therefore be establishedon a permanent basis to implement future primary education projects. TheProject Director in each province would be a specialist in the field ofeducation rather than in construction, because of the project's emphasis ontraining, experimentation and research in education. Assurances were obtainedfrom the Government during negotiations that the FPU and the four provincialunits would be: (a) staffed as shown in para. 4.09 and Table 4.5, and(b) maintained throughout the project period.

4.11 Training. Implementation of all training segments would be prin-cipal responsibility of training specialists of national and provincialplanning units. Provincial project units would mount recruitment programsfor all project personnel early in the preparatory phase in order to assemble,with FPU assistance and approval, all training groups before training is tobegin (Table 3.5). Selection of trainees to be chosen nationally (projecttrainers and researchers) would be a joint responsibility of the FPU andprovincial units. A separate contract has been arranged for training segmentsA, B and C-1 (Table 3.5). A major responsibility of the provinces will be theorganization and conduct of segment C training before and during the opera-tional period. The field responsibility would be assigned to supervisors andlearning coordinators assisted by project trainers, the provincial planning

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units and specialists.

4.12 Research and Evaluation. Implementation of research and evaluationwould also be a joint responsibility of the FPU and provincial planning unitssupplemented by project researchers and specialists. The research andevaluation sections of the planning units would have overall responsibility.Project research contracts are expected to be arranged with universities andInstitutes of Educational Research. The Government has prepared a preliminaryplan for experimentation and evaluation and developed a related plan fortechnical assistance. These plans will provide guidance to the unitsresponsible for implementation.

4.13 Physical Design. The Government has prepared several experimentallow costs designs for the project - some with Unesco assistance. The PublicWorks Department (PWD) in the various provinces is planning to construct afew pilot project schools in accordance with these designs. The scope forimplementing these experimental, low-cost designs would, however, be limitedbecause most of the construction would be minor extensions where the existingstructures would dictate the appropriate design types. The FPU would requestUnesco's regional office personnel from Bangkok to assist in further develop-ing the earlier prepared low cost and experimental designs. Preparation oftender documents, tendering and supervision would be done by the PWD in twoprovinces (Sind and NWFP). In the Punjab this would be done by the People'sWork Program (PWP) and in Baluchistan these activities would be provided bythe Department of Local Government. These agencies have been selectedbecause of their specific manpower and administrative structures, whichenable them to implement small-scale projects in large numbers. Minorsupplemental architectural designs would be done with the assistance of localconsultants.

4.14 School Location Planning. Criteria for selection of project schoolswere developed during appraisal utilizing school mapping procedures. Furtherrefinements - primarily aimed at determining intraprovincial classroomdistribution - have been carried out and practically all sites have beenselected. Over 95% of the project schools are existing schools and the sitesof these schools are generally considered suitable for extension. As aspin-off from the project, school location planning for nonproject schoolswould be conducted with financial assistance from Unicef.

4.15 Finance Implementation. Local funds (US$5.0 million) have beenearmarked in the Government's current fiscal year (ending June 30, 1979) forimplementation of the proposed project. Project preparation is generally inan advanced stage and the Government is anxious to start implementationwithout delay. Civil works contracts for project institutions signed afterNovember 30, 1978 would be included in the proposed project, (advance con-tracting) but payments made against such contracts prior to the date ofcredit signing would not be eligible for reimbursement from the proceeds ofthe proposed credit.

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4.16 In order to facilitate timely preparatory work on training, evaluationand experimentation, the mission recommends that the Association provide retro-active financing of up to US$100,000. Such financing would cover 100% of expen-ditures for technical assistance incurred on or after January 31, 1979.

4.17 Budget allocations would be made available to the project on anannual basis in accordance with the Schedule of Expenditure shown in Table4.6. In addition the financial requirements for the project would bereviewed regularly by the FPU to ensure that project implementation is notdelayed because of lack of funds. During negotiations the Government agreedto: (a) furnish to the Association by March 1, of each year of implementation,an estimate of project funds required for the following fiscal year; and (b)to make the necessary funds available to ensure prompt project implementation.

4.18 Implementation Schedule. The preparatory period of the projectstarted immediately after appraisal and is expected to be completed byMarch 1981 (para. 3.04). This period includes: (a) preservice training(para. 3.17-3.19) (b) preparatory work for evaluation and experimentation(para. 3.20-21); (c) all construction (para. 3.16) and (d) all equipment andmaterials procurement (para. 3.15). The main project period (36 months)would start in March 1981 and would include implementation of supervision(3.10-3.14); studies and evaluation (para. 3.20-3.21) and recurrent teachertraining (para. 3.07-3.09)). The final project period (8 months) would startin early 1984 and would include final analysis of project results and recom-mendations for future development in the primary education subsector (para.3.21). The overall project implementation is expected to take about 5-1/2years and the project is expected to be completed by September 1984. Theproject implementation schedule is shown in Annex 2.

Procurement

4.19 Construction of several schools would normally be tendered as onecontract, but these are nevertheless not expected to exceed US$50,000 each.Previous experience with education projects in Pakistan indicates that thesmall size of the civil works and furniture contracts, the geographicdispersion of the sites and the competitiveness of the local constructionindustry would preclude any meaningful foreign competition in the biddingprocess. Contracts for civil works and furniture (totalling about US$5.5million) would therefore be awarded on the basis of locally advertisedcompetitive bidding in accordance with government procurement procedures inwhich foreign firms would be allowed to participate. Direct labor ("forceaccount") by PWD and PWP would be used at about 20% of project sites

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to test whether this construction mode is more economical than contractawards (about US$1.5 million). Self-help construction was not consideredfeasible because of prevailing community attitudes. Because of the smallsize of all civil works contracts, prior IDA review of civil works contractawards would not be required. During negotiations the Government confirmedthat the distribution of primary schools would be in accord with agreedprovincial distribution.

4.20 Equipment and vehicle contracts exceeding US$50,000 (in aggregateabout US$0.7 million) would be awarded on the basis of international com-petitive bidding (ICB) in accordance with Bank procurement guidelines. Localmanufacturers participating in the ICB would be given a preferential marginof 15% over competing imports, or the existing rate of import duties, which-ever is the lower. Contracts for equipment and vehicles which cannotreasonably be grouped in packages of US$50,000 (in aggregate aboutUS$1.5 million) could be awarded without prior IDA review on the basis ofcompetitive bidding advertised locally in accordance with local biddingprocedures. Where competitive bidding is inappropriate, or is not expectedto yield lower prices than local shopping, sundry equipment could be procuredby soliciting at least three price quotations subject to maximum value ofUS$10,000 for each such contract and an aggregate total of US$250,000. Books(US$0.5 million including contingencies) would be procured in accordancewith standard government procedures.

Disbursements

4.21 The proposed credit of $10 million would cover 60% of the totalproject costs net of tax (100% of foreign exchange costs and 39% of localcosts). Disbursements would be completed in about 5-1/2 years and would coverthe following:

(a) 100% of foreign expenditures for directly imported equipment,vehicles, and books; and 80% of local expenditures for goodsprocured locally;

(b) 25% of local expenditures for civil works and furniture;

(c) 100% of total expenditures for specialist services (including civilwork design); training and fellowships; and

(d) 100% of total expenditures (net of taxes) for salaries and allowancesof assistant teachers, learning coordinators and supervisors.

Any savings in the proposed credit would be cancelled on the Closing Date.Disbursement is expected to be completed by June 30, 1985. The estimatedschedule of disbursements is shown in the following table:

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Table 4.6: SCHEDULE OF EXPENDITURE AND DISBURSEMENT

IBRD FY Expenditures Disbursementand Semester Cumulative Semester Cumulative

semester -------- (US$ million) --------------

19792nd 0.3 0.3 - -

19801st 1.2 1.5 0.1 0.12nd 1.4 2.9 0.1 0.2

19811st 2.8 5.7 0.3 0.52nd 2.4 8.1 0.5 1.0

19821st 1.8 9.9 1.1 2.12nd 1.8 11.7 1.2 3.3

19831st 1.1 12.8 1.1 4.42nd 1.0 13.8 1.0 5.4

19841st 1.0 14.8 1.0 6.42nd 1.0 15.8 1.0 7.4

19851st 0.9 16.7 1.3 8.72nd 0.5 17.2 1.3 10.0

4.22 Documentation. Since construction of a large number of smallschools (about 1,000), salaries of a large number of individuals (860) andtravel and per diem for 11,000 trainees are being financed in this project,special arrangements would be made for record keeping. The FPU wouldmaintain a file for each project school receiving physical facilitiesavailable for inspection by IDA's progress review missions. Each filewould include: (a) the completed educational/architectural brief; (b)the layout plans; (c) bids received; (d) bid analysis and contract recom-mendation and award; and (e) details of expenditures. Disbursements forcivil works carried out by force account and by contracts of less thanUS$5,000 equivalent would be made against statements of expenditures preparedby PWD, PWP, or local government (total expenditure about US$2.0 million).Similarly, disbursements for local training and local salaries (includinghonoraria and allowances) would be made against statement of expenditures

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prepared by the provincial project units (total about US$5.0 millionexpenditure). All statements of expenditures would be certified by the FPU;the documentation for which would be audited and retained for review by IDAsupervision missions. All other disbursements would be made against fulldocumentation.

4.23 Accounts and Audits. Assurances would be obtained from GOP that allagencies involved in project implementation would prepare and maintain separateaccounts for the project in accordance with sound accounting practices. Suchaccounts, together with disbursement documents, would be audited annually byindependent auditors acceptable to IDA. The FPU would consolidate the accountsfrom the various agencies and submit to IDA certified copies of the auditedaccounts together with the auditor's reports within six months of the end ofeach fiscal year. The audit report would include, inter alia, a statementverifying that funds disbursed by IDA against statements of expenditures hadbeen used for the purpose for which they were provided. During negotiationsthe Government provided assurances that federal and provincial auditingprocedures acceptable to IDA would be applied annually during implementation.

5. BENEFITS AND RISKS

Benefits

5.01 The project is expected to lead to substantial improvements inprimary education in terms of access, efficiency, learning achievements andcost reductions. In the project areas, access to primary schooling would beextended to about 15,000 male students and 30,000 females who would not haveentered grade 1 without the project./l It is further expected that as aresult of measures under the project, overall completion rates would beincreased from 50% to 60% for initial male entrants and from 35% to 50%for females. Consequently, 40,000 males and 50,000 females would be expectedto complete the full five-year primary cycle who would not have done sowithout the project. In other terms, in the project areas only about 35% ofthe males and 10% of the females in the relevant age groups would normallyachieve literacy, but with the project, these figures are expected to beincreased to roughly 45% and 25%, respectively. Improved attendance, coupledwith better teaching, materials and facilities are also expected to contributeto improved learning achievements which would be measured periodically underthe project. Overall, the gains for females are expected to be proportionatelygreater than for males in keeping with the emphasis of the project. Moreover,the project is expected to contribute to reduced unit costs (annual operatingcost per student and costs per graduate) through the use of larger class andschool sizes, and lower-paid assistant teachers. Even taking into accountthe increased cost of more intensive supervision, unit recurrent costs p.a.are expected to decrease on balance by 15-25%, or about PRs 20-35 per student.

/1 The qualitative estimates of benefits under each objective are illustrativeonly since they required broad assumptions as proxies for essential data.In the experimentation under the project, baseline data would be collectedon population, enrollment, retention and achievement to facilitate more

adequate measurements.

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5.02 Though significant, these short-term benefits would be realized onlyin the project areas which constitute less than 10% of the primary educationsystem. The fundamental justification for the project is the contribution itwould make to finding solutions to the problems of primary education, whichcould then be applied over time to the 90% of the system not included in theproject. Thus the project could eventually benefit the country as a wholethrough quality improvements and cost reductions in the delivery of primaryeducation. For example, the projected 25-30% decrease in unit recurrentcosts, if applied nationwide, would permit an expansion of enrollment coverageby the same proportions without an increase in expenditure. Ultimately, however,the success of the project must be measured by the benefits of primary educationto the individual and the positive effects of literacy on society. Studies inother countries point to benefits of a more literate population in terms ofhigher agricultural productivity, greater acceptance of population controlmeasures and lower fertility rates, and better understanding of nutrition andhealth measures.

Risks

5.03 The project faces an implementation risk. The proposed program iscomplex, covering not only different components, but also a mix of approachesfor each province. Three measures have been taken to minimize this risk:(a) federal and provincial planning units have been strengthened; (b) thedesign of the experimentation would be adapted as necessary to take intoaccount the level of administrative resources that can be relied upon withoutsacrificing the fundamental aims of the experimentation; and (c) technicalassistance would be provided for training and evaluation. The high degreeof involvement of provincial and federal staff in preparing the project hashelped to achieve broad local familiarity with its objectives and content, afactor which should lessen implementation problems.

5.04 There is also a risk that the impact of the project could be reducedbecause of noneducational factors. Poverty and other family influences couldprevent increased school attendance and reductions in dropout despite theproject inputs. The limited project measures may not be able to overcometraditional reluctance of rural parents to educate their children, particularlygirls. To lessen this risk, a comprehensive training program would prepareproject personnel, particularly supervisory staff, for involving parents andthe community in the educational process so as to help change traditionalattitudes. In short, although the risks under the project would be compara-tively high, the extent of the potential benefits are even greater and makethe project worth implementing.

6. AGREEMENTS REACHED

6.01 During negotiations the Government provided assurances on thefollowing subjects: distribution of civil works (para. 3.16); reports onresults of baseline measures, annual reports on results and a comprehensive

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plan for the development of primary education (para. 3.21); provision oftechnical assistance (para. 3.22); project unit staffing (paras. 4.09-4.10);provision of project funds (para. 4.17); and auditing procedures (para. 4.23).

6.02 Subject to the above conditions the proposed project constitutes asuitable basis of an IDA credit of US$10 million equivalent to the IslamicRepublic of Pakistan for a term of fifty years including a ten year graceperiod.

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COMPARATIVE EDUCATION INDICATORS ANNEX I

MARCH 1 , 1979

GNP/ G NP :% TOTAL:%( OF PUBLIC :PRI. :AV.PRI. : SEC :CAPITA: DEVOTED:PUBLIC EDUCATION :LITER- PRI. :COMPPLE- :STU- :SCH.TEACH:PROGRESS-: SEC. :STU- :HIGHIER:

A T TO EDLI.: EXP. RECURRENT :ACY :ENROLL:TION :DENTS:SALARY IN:ION RATE :ENROLL:DENTSIENROLL::MARKET- (PUBLIC:DEVOTED:EXP ALLOCATED: RATE :RATIO :RATE FOR:PER IRELATION :FROM PRI. ISATIO !PER IRATIO

POP. :PRICES: EXP. TO) TO: :1% OF NET :PRI.SCH.:TEACH: TO GNP/ :TO SEC. NET :TEACH- GROSS:YR:MILLS.I (USS): ONLY) EOU. :PRI. SEC. HI. ADULTS): (5) :CYCLE(%):ER CAPITA : (%) :% ER %

ADVANCED

AUSTRIA 74 7S5F 4.870F 5.3Y 8.5EY 24Y 51Y 15Y 99 98 93D 26D 2.00 990 51D 190 16.859CANADA 75 22.8 7,135 7.3 16.7 30 37 26 90 99 97 19 2.0 99 90 18 16.00GERMANY F.REP.75 61.8 6,670 5.0 10.2 31EY 64.* 26EY 93) 90 99 23EY ... 99Y 84Y 22C 20.26YJAPAN 75 111.6 4.450 4.30 20.78 4009 37UY IIUY 59 99D O9C 25 2.08B 990 95EV 20C 24.69YNETHERLANDS 75 13.7 5,425 9.4 27.40D 21 39 25 99 95 95 29 2.0 97 s0 20 12.00NEW ZEALAND 73 3.1F 4,280F 5.2 - 39 24 29 VS 99 99 26 .. 99 67 19 24.00NORAIAY 76 4.0 9,043 7.2 11.4 54 24 15 09v 99 99 16 1.5 99E 62 11 11.00SWEDEN 76 9.2 6.190 8.9 14.0 23 29 12 99j 99 99 16 9.. 0? 85C 13 30.00CU.N. 75 56.0 3,760 7.1 13.9 26 41 16 99i 99 ... 24 2.0 ... 68 17 2I.OOXU.S.A. 76 214.6 7,950 5.4 15.9 .. . 72-* 28 99E 99 99 22 .. . 99 93 19 24.00

S .1 RPE

GREECE 76 9.1 2.590 2.9 10.4 37 28 21 065 99 620 31 2.0 70E 80 27 16.00IRELAND 74 3.11 2,J90F 5.1 13.90 43Y 41Y 149 99 108KV 99A 35 . .. 95A 65XY 19 15.47YPORTUGAL 75 9.6 1,570 4.4 17.8 52 27 13 70 98 55 21 3.0 70 29 14 7.60ROMANIA 75 21.2 1.240 4.0 6.4 36 19 13 99i 101K ... 21 . .. 96 49 22 10.00SPAIN 74 35.3F 2,750F 2.49 15.2A 49Y 22Y 15Y 94A 115XY . .. 35A ... . .. 76EV 30 17.68Y

AFRICA

ALGERIA 77 16.9 9900 7.5 14.3FY 42 ... 21 35 78X 45 39 4.0 55 26X 13 6.00BENIN 74 3.lF 130F 7.2N 36.09 470 230 100 110 44XY 70B 53Y 25.08 436 lIXY 298 0.74YB01TSWANA 76 0.7 410 4.0 19.2 53 20 14 3 72X 95 32 3.0 60 12 22 0.30BURUNDI 74 3.7F 110F 2.5 19.90 47R 418 12R 10 200 30? 38 10.0 14 20 18 1.0CANEROON 76 7.7 314 3.7 21.5 33 43 20 .. 60 45 52 4.0 2.0 90 24 0.900YC.AR. 74 1.81 220F 3.00 17.20C 569 199 .. ... 79XY 25 699 ... 18 8KV 278Y 0.2tYCHAD 75 4.0 120 3.0 10.3 76 22 1.9i 29XBY 30 65BY 15.0 8 2X69 30 0.0)6YCONGO(B) 74 1.3F 5101 6.0 19.3 40 32 21 507 1338 63 63 6.0 48 33X 22 3.40EGYPT 76 39.2 310 5.9N. ... 30 32 25 44 75 80 31 . 79 45 20 12.00ETHIOPIA 77 29.0 100 2.4 12.5 44' 31 14A 10 26 ... 50 .. . 63 8 38 .0ABDN 74 0.5F 2,540F 5.00 20.60 250 90 110 .. 1009 250 46C 5.0 IBA 31Y 21C 0.29YGA1,BIA 76 0.5 170 3.3 11.5 46 25 6 10 27 90 33 . . 92 13 25GHANA 74 9.9F 590F . .. 19.7Y 43Y 22Y 20YQ . .. 6009 626 30Y . 146 35XY I6cV I .099GUINEA 76 4.7 1801 4.3N0 .. 30 3 1 30 . .. 30K 64 45 12F 66 13X 26 4.00IVORY COAST 76 7.0 610 6.8 23.1 33 46 13 SA 50 86 43 7.0 47 17XY 26 1.64YKENYA 76 13.8 240 5.9 28.0 67 23 10 40 832? 60? 34 6.0 30 16 27 l.0LESOTHO 75 1.2 180 12.OP 23.0 49~ 19 20 40 85 50 52 7.ON 81 10 26 1.00L'8ERIA 75 1.9 410 2.4 13.2 27 15 20 7.i 58 ... 35 2.0 ... 12 26 l.10AYMADAGASCAR 74 B.8F 200F 3.2 22.1 51 24 25 4 0 680 30 53 15.0 48 9X 28 1.00MALAWI 77 5.6 140 2.2 9.3 40' 17 22 29 56X 21 61 5.0 9 50 21 0.47MAL! 75 5.7F 901 4.2M 33.91F 4SF 37F 193 lOP 2201 .. . 481 9.51 501 6X 21 ..S3AUAITANIA 71 1.3P 320P 4.1Y 20.OY I.9.. . ICA 17SF ... 22A ... ... 3XV 24A .MAURITInUS 76 O.9L 680 4.7 12.1 59 26 6 BOC 94 99 24 4.5 90 45 32 1.50MOROCCO 78 18.2 540 8.1 15.2 399 489 139 2d 659 33 40 . .. 33 17X 22 4.00NIGERIA 74 75.09 340F 4.10Y 24.2DY 239 16Y 424 . .. 49XY .. . 34DY .. ... 10KV 20CY 0.48YRW~ANDA 73 4.1F l0oop 3.2C 28.00....... 23 52 . .. 51 ... .. 2 13 0.23CYSENEGAL 76 5.1 390 3.3 26.0 46 34 20 10 32 ... 49 10.0 20 10 21 1.5SIERRA L.EONE 73 3.01 2001 3.4 23.4 31 38 30 157 34X 45 32 4.OE 68 13X 21 0.536YSOSIALIA 75 3.2 110 3.70 10.89 49Q 16Q 193~ 507 34X 88 35 10.0 60 3 Is 0.10SUDAN 76 15.9 290 4.5 19.9 40 36 18 20 34 74 33 3.8 33 14 24 1.24SWAZIt.AND 75 0.5 470 3.89 - 39 31 19 50 73 71 38 3.8, 51 24 22 1.00TANZANIA 76 15.1 180 6.8 17,4 42 21 12 130 930 81 49 6.6 6 4K 19 0.34TUNISIA 73 5.6F 7309 6.3 23.4 37 43 18 US 72 81 41 6.0 31 14 21 3.00UGANDA 75 11.6 230 3.4DY 15.7DY 34EY 40EY 22EY 2bA 53XY ... 34EY ... 14A BECY 21A D.56YUPPER VOLTA 77 5.8 118 3.4 23.9 31 16 32 S,C 13 23 51 24.0 18 2 25 1.0ZAIRE 76 25.8 140 6.0 22.0 49 26 25 15 86X 44 42X 2.0 41 13X 27 1.OOXZANIBIA 76 5.1 440 6.9 15.1 54 22 22 39 97X 80 49 7.0 21 16 23 1.50

CENTRAL AMERICA AND THE CARIBBEAN

BARBADOS 76 0.2 1,620 8.1 221 43 31 16 D93 1080 89 21 3.0 99 94X 17 ..COSTA RICA 75 2.0 960 5.29 22.7B 570 25B 123 h90 :0909 658 296 3.08 586 52EV 256 17.115YCUBA 78 9.5 9,500 8.0 11.0.... .. O L 99 99 22 2.7 98 85 15 15.00DOMINICAN REP.72 4.7F 7201 3.0 13.9 42 24 22 SI s0 17 54 3.00 63 13.5 24 7.00EL SALVADOR 75 4.0 460 3.6 23.9 91 5 22 603 65C . .. 3909 .. , 39 13XC 21CY 4.358YGUATEMALA 73 6.3F 570F 1.9 16.0 55 23 14 43 64 26 35 3.0 89 8 25 4.09YHAITI 76 4.7 200 1.0 8.0 81 21 lj 208 25F 13 56U 3.0 62 4 ... 0.7HONDURAS 75 2.9 3900 4.2G 18.90 62G 15G 190 513 79 30 35 3.0 66 Il 17 4.00JAMAICA 76 2.1 1,070 9.9 15.2 37 33 22 60E 91 52 39 4.5 94 64 25 7.58MEXICO 75 59.9 1.050 3.109 12.O0Q 51Y 26Y 129 70 11209 31 46 3.0 63 35EY 23A 8.97EYNICARAGUA 74 2.3F 7001 2.5 14.2 61 13 13 57 65 21 37 2.0 93 17 24 7.00TRINIDAD & T. 77 1.1 2,185 4,5 14.1 48 32 20 09 98 91 30 3.0 49 62 24 ..

SOUTH3 AMERICA

BOLIVIA 78 5.8 31SF 5.0 17.51'..... ... 38 178 290 24 59 .. . 46 18DBRAZIL 75 107.0 1,030 5.0 12.4 425 201 271 64A 860 ... 270CY . ... 26G 1509 6.006CHILE 75 10,3 990 3.8RY 12.5R9 239 109 509 . .. 11909 . .. 359 . ... 48XY -. 16.55YCOLOMBIA 74 23.69 5801 3,309 21.20Y 4409 2209 11Y 73 10589 20 339 4.0 90 36EV 14A 6.67YECUADOR 75 7.1 690 3,70 27.7C ..... .. 102X9 . .. 38C .. , ... 38KY 14C .GUYANA 74 0.81 510F 5,8N 14.70 47 35 14 (33A, 92X 39 33 6.0 19 62X 24 1.00PARAGUAY 74 2.81 590F 1.9 11.0 68 13 22 VI 82 28 30 1.9 65 17 12 5.00PERU 75 15.4 760 4.2DY 21.70Y 40Y 229 159 72 IiiXY 38 39D9 3.0 70 4809 230Y 14.41YURUGUAY 75 2.8, 1,300 2.5 15.3 49 34 20 94. 93X ... 24 ... 83 ... 10 ..VENEZUELA 73 12.0F 2,280F 4.6 19.9 300 280 359 7/A 81 ... 33 2.4 ... , 33 ,... 12.63CY

- 43 -

COMPARATIVE.EDUCATION,INDICATRS (CONTO) ANNEX 1 PAGE 2

MACH1,179

* .GNP/ % GNP :% TOTAL;% OF PUBLIC : PRI. IAV.PRI. : . SEC :CAPITA: DEVOTED:PUBLIC :EDUCATION :LITER- PAI. ICOMPLE- :STU-- :SCH.TEACH:PROGRESS-: SEC. :STU- :HIGHER:

* AT I TO EDU.; EXP. RECURRENT :ACY :ENROLLITION :DENTS:SALARY 1N:ION RATE !ENROLL:DENTS!ENROLL::MRE:(PUBLIC:OEVOTED:EXP ALLOCATED: RATE :RATTO :RATE FOR:PER :RELATION :FROM4 PR1. IAI PR:RATID

POP. :PRICES: EXP. TO : TO: :(% OF NET :PRI.StH.ITEACHI TC GNP/ :TO SEC. NET :TEACH- GROSS:YR:MILLS.I (USS): ONLY) EDU. :PRI. SEC. HI.:AUU,TS): ()% :CYCLE(%):ER I CAPITA M 9 f%') :ER ()

ASIA AND OCEANIA

AFGHANISTAN 77M 14.3 1600 l.A 11.6 47 19 15 12 299 AR 37 3.00 62 BR 17 1.00BANGLADESH 73 78.6F 9SF 1.2 20.2 44Y 22Y 21Y 230 56X . .. 490 ... ... 23XD 28CHINA(TAIWAN) 73 16S0F 93SF 3.2 14.0 28 4: 22 62 980 94 40 14.0 84 610 26 20.00CINDIA 75 609.1 140 2.6VY .. .. .... .29B 65XY -. . 43A ... . .. 29XY 20AY 2.34EY

- INDONESIA 76 130.2 240 3.0 11.0 26 32 Is 6306 7OEX 43E 32E 2.0 52E 19EX 14IE 2.00IRAN 73 33.4F 1IR6OF 3.3 12.6 506 lAB 129 65 7 7 74A 32 9.09 BOA 24 32 4.32CYIRAQ 75 11.1 1,250 6.70 16.3DR........ 26C 93XY ... 22 -. . .. 35XY 26C 8.47Y'JORDAN 73 2. 7F 46SF 7.0 9.9 52 IS 21 593 919 76 39 5.0 84 50x 22 4.00-KOREA 76 35.9 699 3.0 15.6Q 66 13 B 92F 1639 57 50 2.6 90 84 39 14.4LEBANON 72 3.2F 1.07SF 3.5 16.0 39 40 IS 6.3 8S 65 19 2.0 63 26U 25 23.00MALAYSIA 76 12.6 960 6.7 26.0 42 34 15 60C 95 93 32 .3.7 78 48 29 3.00NEPAL 76 12.6F 11SF 1.1 11.0 29 20 41 IV 59 29 31 2.3 64 14 24 0.9C51AN 72 0.BF 2.30SF 1.7N 3.8 96 - - 20 249 59 27F 7.0 ... 0,4X 9 .PAEIRTAN 79 69.2 6190 1.9 16.2 45 25 19 21 479 47X39o2.0 . .. 179 19 5.00FAPUB N. 70 U. 7 .b6 16.1 _36 a 1 24 32 577 73P 3ll 111.0 90 Ml9 24 o .90?PHILIPPINES 74 42.2F 39SF 2.9 14.9 7 3 15 12 8) 1049 ... 34 19.0 ... 46X .. . 21.00SINGAPORE 74 2.3F 2,450F 2.7Y 9.2Y 35Y 39Y i7Y 7!~A IO9XY 72A 31Y . .. ORA 44XY 24 7.68YSYRIA 75 7.4 720 3.6 6.9 39 25 26 53 89 70 35 2.0 92 45 2 1 12.00THAILAND 73 41.9F 35SF 4.0NF 2o.7F 65 9 19 92 879 630 32 3.0 Li 910 21X 24 2.00TURREY 73 40.2F 90SF 9.9CY 20.60Y7... .. ..... ASY . .. 34Y . .. .. . 24Y 270Y 5.83YYEMEN 73 5.9F 200F 0.5 4.0 45P 21P 23P IS 199 16 36 5.0 75 29 19 0.0587YE-MEN P.0.R, 76 1.7 290 6.6 ... 57 28 B 23 899 46 30 5.0 94 21X 24 0.10

SUMMARY FOR DEVELOPING COUNTRIESI

NUMBER OF COUNTRIES: 94 90 88 98 85 87 95 74 95 69 77 94 91 84

RANGE: (0.5- (3.9- (25- (5- (2- (3- (14- (13- (19- (1.9- (7- (.4- (9- (.ol-

12.0 ) 33.0) 96 ) 47) 41) Sd) 133X) 99) 693 25.0 ) 99) 80 ) 39) 23.0)

QUARTILES:UPPER I5.1 21.2 54 32 22 73 94 76 46 7 83 36 25 7.0MEDIAN: 3.9 16.3 45 23 18 95 79 95 36 4 63 17 23 2.3LOWKERI: 3.0 12.4 39 18 12 20 53 30 32 3 43 9 20 .9

SYMBOLS: ... DATUM UNAVAILABLE 9=1970 DR BEFORE M1=CURRENT PRICES SOURCES:- MAGNITUDE NIL DR NEGLIGIBLE 9=1971 N GOP----7 QUESTIONABLE 0=1972 P=INCLUDING FOREIGN AID COLUMNSIl AND 2 WORLD BANK ATLAS

*INCLUDES PART-TIME STUDENTS 0=1973 .J=CENTRAL GOVT. ONL.Y OR 19R0 MISSIONS*.COMBINED WITH PRIMARY E=1974 6-MINISTRY OF EDUCATION (MOE) ONLY 3 TO 14 1990 MISSIONS**UNDER REVIEW F=1975 S-MOE A1N0 STATE GOVT. ONLY AND/OR UNESCO

G=1976 I EXCLUDING CENTRAL GOVT. STATISTICALUI-PUSLIC ONLY YEARBOOKRV=INCLUDING PRIVATE EXPENDITUREX.INCLUDING OVERAGED STUDENTSY=UNESCO SOURCES

COMPARATIVE EDUCATION DATA ARE USEFUL IN THE EVALUATION OF VARIOUD, EDUCATION SYSTEMS AND ANALYSIS OF RELATIVE STAGES OF EDUCATIONALDEVELOPMENT BETWEEN VAR10US COUNTRIES. HDWEVER,ON THE BASIS O- 11,L PRESENT DATA,CROSS-NATIONAL COMIPARISON SHOULD BE APPROACHED WITHGREAT CAUTION. DATA PRESENTED IN THE A50VE TABLE HAVE BEEN COLLECJED LARGELY BY THE BANK MVISSIONS PROM GOVERNMENT SOURCES; THEREMAINDER ARE STAFF ESTIMATES OR DATA FROM UNESCO. EFFORTS HAVEU LEN MlADE TO STANDARDIZE DEFINITIONS AND WITHIN LIMITS, TO CHECK THEACCURACY OF THE DATA. NEVERTHELESS,SUCH DATA ARE STILL IMPER ELU !N SEVERAL RESPECTS AND THE BANK IS WORKING TO IMPROVE THEMPROGRESSIVELY ON THE OCCASEON OF ITS OPERATIONAL 5099K. IN THL USE OP THESE DATA, THE FOLLOWING QUALIFICATIONS SHOULD BE BORNE SNMIND:

(1)`EDUCATION' AS DEFINED IN THE TABLE INCLUDES ALL EDJCAT IDN AND TRAINING, FORMAL AND NON-FORMAL;(2)'PRIMARY EDUCATION REFERS TO EDUCATION AT THE FIRST LLVEL AND `SECONDARY" EDUCATION REFERS TO ALL EDUCATION AT THE SECONDARY

LEVEL REGARDLESS OF TYPE (E.G. GENERAL. TECHNICAL, AGRICULiURAL) (3)`LITERACY RATES"(COL.6) ARE OFTEN OQTAINED FR0M COUNTRY ULNSUSES. IN MANYCOUNTRIES THEY ARE ONLY APPROXIMATIONS AND IT IS

DOUBTFUL THAT ANY UNIFOlIM DEFINITION OF "LITERATE" HAS U~Lt, FO,LLOSED CONSISTENTLY:(4('PUBLIC EXPENDITURE IN EDUCATI0N`(COLS.3,4 AND 5) REPLY 1-1 ALL CAPITAL AND RECURRENT EXPENDITURES DEVOTED TO EDUCATION By

PUBLIC AND QUASI-PUBLIC AGENCIES:(5)'ENROLLMENT RATIDS"(COLS 7, 12 AND 14) REFER TO SCHOOL YEAR AND MEAN THE PERCENTAGE OF ELIGIBLE CHILDREN ENROLLED FULL-TIME

IN THE APPROPRIATE SCHOOL, PUBLIC AND PRIVATE ST LEVEL. THLY ARE OFTEN SUBJECT TO A WIDE MARGIN OF ERROR IN THE DEVELOPINGCOUNTRIES OWING TO VARIATION IN THE ACCURACY OF BASIC DATS)I.E. AGE-SPECIFIC POPULATION AND ENROLLMENTS). ENROLLMENT FIGURESFREQUENTLY ARE HIGHER THAN THE NUMBER OF STUDENTS ACTUA.LY IN SCHOOL. OVERAGED STUDENTS WHOSE INCLUSION IS INDICATED BYFOOTNOTES ALSO CAN INFLATE THE RAT1OS.

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- 45 -

ANNEX 3Page 1

PAKISTAN

PRIMARY EDUCATION PROJECT

Selected Documents and Data Available in the Project File

A. General Reports, Studies and Data Collections

Ministry of Education and Provincial Coordination

A-l "The Education Policy 1972-1980" (March 1972).

A-2 "A Review of Implementation of Educational Reforms" (May 8, 1976).

A-3 "Detailed Curricula for PTC and CT Programs" (1976).

Bureau of Educational Planning and Management, Ministry of Education

A-4 "Pakistan Education Statistics - 1947-48 to 1972-73" (1973).

A-5 "Pakistan Education Statistics - 1970-71 to 1975-76" (1976).

A-6 "Pakistan Education 1974: A Sector Assessment" (October 1974).

A-7 "Primary Education in the Rural Villages of Pakistan, 1976-77"(2 vols.), (January 1977), by Saeed Ullah Shah and J.N. Eastmond.

A-8 "Design Considerations for Construction of Rural Primary Schools"(April 1977), by Kalim A. Siddiqui, Saeed Ullah Shah, andJefferson N. Eastmond.

A-9 "Strategy for Upgrading Primary Education in Pakistan" (April 1977)by Jefferson N. Eastmond.

A-10 "Determining Pupil Participation through School Mapping Procedures"(1977), by Shahid Iqbal and Jefferson N. Eastmond.

A-11 National Education Policy (Salient Features)(October 1978)."Major Trends in Education" (September 1977).

Planning Division, President's Secretariat, Education Section

A-12 "Review of Achievements of 1976-77 and Annual Development Plan for1977-78".

- 46 -

ANNEX 3Page 2

Planning Commission

A-13 "Manpower and Educational Requirements of Pakistan, 1961-90" (March1970), by Kaare Ruud.

A-14 "The Fifth Plan 1977-83", Vols. I and II (June 1977).

A-15 "The Fifth Five Year Plan 1978-83", Sectors on "Education and Training"and "Rural Development" (June 1978).

People's Open University

A-16 "In-servize Elementary Teacher Education" (1974).

Government of the Punjab, Education Department

A-17 "Primary Education Management" (July 27, 1977)(mimeo), by FerozaYasmin and Ali Shabbar Kazmi.

University of the Punjab, Institute of Educational Research

A-18 "A Study on Teachers in W. Pakistan (1970)."

A-19 "An Analytical Study of Dropout Factors in Primary Schools ofthe Punjab," by Study Group and Anwar Hussain (December 1972).

A-20 "An Analysis of Ten-Year Old Illiterates" (undated) by Study Groupwith Dr. Mrs. Shirin Khan.

Unesco

A-21 "Pakistan: Education for Rural Development" (2 vols) (June 1974).

United States Agency for International Development

A-22 "Analysis of 1974 Pakistan Education Sector Assessment," byNathan Kravetz (January 1975).

A-23 "Pakistan: Primary Education Development," by Nathan Kravetz,Arthur J. Lewis and Richard E. Speagle (September 1975).

World Bank

A-24 "Pakistan: Development Issues and Policies" (2 volumes), ReportNo. 1924-PAK (April 7, 1978).

A-25 "Development and Utilization of Human Resources in Pakistan"(Draft, April 1977).

A-26 "Educational Issues in Pakistan: A Sector MIemorandum," by JohnSimmons and Philip Brock (Draft, August 1977).

- 47 -

ANNEX 3Page 3

A-27 "Pakistan: Operational Implications of Adopting Basic NeedsTargets" (Draft by Shahid Javed Burki, Norman Hicks and Mahbub ulHaq, November 15, 1977).

A-28 "Appraisal of Educational Projects in Pakistan," Report No. TO-397a,March 10, 1964.

A-29 "The Islamic Republic of Pakistan: Appraisal of a Third EducationProject," Report No. 905b-PAK, January 11, 1977.

A-30 "Pakistan - First Education Project - Credit 50-PAK - ProjectCompletion Report," July 14, 1977.

A-31 Education Sector Memorandum (December 1978)

Books

A-32 "Primary Education and National Development," by Rodney Osberg(Stockholm: Almquist and Wiksell, 1973).

A-33 "Education in Pakistan," by Ishtiaq Husain (Karachi:MA'AREF, Ltd.1975).

B. Reports and Studies Related to the Project

B-I "Pakistan: Primary Education," Project Paper: Proposal andRecommendations for the Review of the Loan Committee(September 20, 1977).

B-2 Preappraisal Report, IDA (April 1978).

B-3 Aide Memoire, IDA Appraisal Mission (September 1978).

B-4 Plans for Training, Experimentation and Education, BritishCouncil (December 1978).

C. Working Papers and Tables

C-1 Set of Working Papers

I

IBRD 14055

r dii 63- !6 S. s . R.( JANLARY 1979

PAKISTAN CH I NA

Proposed Primary Education Project iPROJECT COVERAGE BY DISTRICT * _

r36- - //1/

''\ 36°

TYPES OF SCHOOLS / l . 6

GIRLS BOYS

I)- 1O O% 100%

40-50% 40-50% /rsdes ?/25% ' 25 it,

1 7...>..App-o-nste me rf

\\- 13% //,,, 1% s< A bb.tabac

1)_strict boundarmes

- - ?rocncr,oI boundraries bad

_. _ r tcIrrtaion,,l boundaries

<< d~~~~~ . os~ad'

32' 0 3V~~~~~~~~~~~~~~~~~~~ 10 20 0 0

I5

Eb EP Ol 'na llaeo

IS' I N A IAAI. R° 1-AN

of thr rreaers of the report to which it ,s attached. rThe dro, mein S useed and ther tf t ,

hcundaenosshcertnonttio mapdccot inply.no thegait of theWorld Rank and ito /eeEN\ts Arabian Sna l,fattilietrs. eltc /cdgment on toe legal statcnJ nf any teritor or 0 any ertdorfstfn t or.a c c e p t a n c c i of uch ao0nd a r iec 6 8 - g 0 _ 0 4 0 0

dii fig~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ IL TER