Document of

The World Bank

FOR OFFICIAL USE ONLY

Report Nl. 7586

PROJECT COMPLETION REPORT

SWAZILAND

THIRD EDUCATION PROJECT(LOAN 1792-SW)

DECEMBER 30, 1988

Southern Africa DepartmentAfrica 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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List of Abbreviations

DIES District In-Service Education Specialist

GDP = Gross Domestic Product

ICB = International Competitive BiddingIDM = Institute for Development ManagementITL = Individual Tenure Land

JC = Junior Certificate Examination

LITS Local In-Service Teachers

MLPS = Ministry of Labour and Public ServiceMOE = Ministry of EducationMOWC = Ministry of Works and Communication

NCC = National Curriculum CentreNERCOM = National Education Review Commission

PCU = Primary Curriculum UnitPIU = Project Implementation UnitPS Principal Secretary

REO = Regional Education OfficeRMA = Rand Monetary AreaRSA = Republic of South Africa

SACU = Southern African Customs UnionSCU = Secondary Curriculum UnitSIDA = Swedish International Development AgencySIMPA = Swaziland Institute'for Management and Public AdministrationSNL = Swazi National LandSPC = Swaziland Primary School Certificate

WPTTC = William Pitcher Teacher Training College

TME WORLD BANKOWashnton. D.C. 20433

U.S.A.

Od.c. cd DinoctE.Gur4waopmatimu ivahjatwm

December 30, 1988

!EMORANDIR4 TO TI'E EXECUTIVE DIRECTORS AND THE PRESIDENT

SUBJECTS Project Completion Report: Swaziland - Third EducationPro1ect (Loan 1792-SW)

Attached, for information, is a copy of a report entitled'Project Completion Report: Swaziland - Third Education Project(Loan 1792-SW)" prepared by UNESCO and reviewed by the Africa RegionalOffice. Further evaluation of this project by the Operations EvaluationDepartment has not been made.

Attachment

This document has a restricted distribution and may be used by recipients only in the perfonnmncof their officil duties. Its contents may not otherwis be disclosed without World Bank authoriation.

FOR OMCIuL USE ONLY

PROJECT COMPLETION REPORT

SWAZILAND

THIRD EDUCATION PROJECT(LOAN 1792-SW)

TABLE OF CONTENTS

Preface ..... o*...*... ....... ....... * * * * * * * * ...... ...... 1

Basic Data Sheet ....... *i.. ..... .* ......

Evaluation Summary . ....... Go. .. . ........ ............... vi

chapter I - Project Background I

Socio-Economic Setting 1

Sector Setting 2Curriculum Development and In-Service Training 3Training of Civil Servants 3

Formulation of the Project 3Project Justification 4

Project Objectives and Description 4

Anticipated Benefits and Risks 6

Chapter n - Project Implementation 7

Overview 7

Project Management 8

Professional Services and Building Design 8

Civil Works and Mair.tenance 10

Furniture and Equipment 12

Vehicles 12

Consultants and Technical Assistance 12

Covenants 12

Chapter m - Costs and Disbursements 13

Project Costs and Financing 13

Areas and Cost per Student Place 14

Disbursements 14

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.

Page

Chapter IV - Initial Education and Training Outcomes 15

Overview 15Improving Access to Primary Education 15Improving Access to Junior Secondary Schools 16Curriculum and Textbooks Development 17Impact of In-Service Teacher Training 19Efficiency 21Training of Civil Servants (SIMPA) 21Studies and Evaluation 22

Chapter V - Bank Performance 24

Project Generation 24Project Implementation 24

Chapter VI - Lessons Drawn from this Project Experience 26

Appendix 27

Annexes

1. Implementation Schedule

2. Comparison between Appraisal and Actual Construction,

Places, Areas, Costs

3. Compliance with Loan Conditions

4. Comparison of Originally Estimated Costs and Actual Costs

5. Allocation of Loan Proceeds and Schedule of Disbursements

6. Enrolments in Project Institut;ons

7. Primary Books Published and Costs

8. Types of Workshops Operated by NCC in 1985

9. Summary of SIMPA Courses

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PROJECT COMPLETION REPORT

SWAZILAND

THIRD EDUCATION PROJECT(LOAN 1792-SW)

PREFACE

This is a Project Completion Report (PCR) for the Third EducationProject in Swaziland (Loan 1792-SW), for which a Loan of US$10.1 millionwas approved in January 1980. The project has been completed and the Loanaccotint was closed on December 31, 1985, eighteen months after the originalClosing Date.

Unesco accepted the Government invitation under the Unesco-WorldBank cooperative Agreement to send a mission to prepare the PCR. Beforegoing to Swaziland, the mission, comprising a general educator (missioncoordinator) and a consultant architect, spert a week in Washington, D.C.studying the relevant Bank files and consulting with Bank staff involvedwith the project. The mission visited Swaziland during February 2-13,1987, during which additional data were collected and discussions were heldwith some officials who had been involved with the project. A draftreport, based on data collected in Washington and Swaziland, was sent tothe Government and the World Bank for review, and their respective commentshave been incorporated in this report.

In accordance with the revised procedures for project performancereporting, this PCR was read by the Operations Evaluation Department (OED)but the project was not audited by OED staff. The draft PCR was sent tothe Borrower and its agencies for comments in September 1988. No commentswere received.

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Project Completion ReportSwaziland

Third Education Project (Loan 1792-SW)

BASIC DATA

Key Project Data

Appraisal ActualEstimate

Total Project Cost:

- US$ million 15.90 12.701/underrun (%) - - 20

- Emalangeni million 13.80 18.50overrun (%) - + 34

Loan Amount US$ million 10.1Disbursed - 7.91Cancelled - 2.192.

Repaid 31 May 1987 13Outstanding 9 394621

Date Physical Components Completed Sept. 1983 August 1986No. of months since Loan signature 49 78Proportion completed by above date (%) - 98Time overrun (%) 59

Date of Overall Project Completion Sept. 1983 August 1986No. of months sirce Loan signature 49 82Proportion completed by above date (%) - 100Time overrun (%) 58

Institutional Performance Good

Cunulative Estimated and Actual Disbursements(in USS million)

FY 1981 1982 1983 1984 1985 1986 1987

Appraisal Estimate 1.45 5.25 8.70 10.10 10.10 10.10 10.10Actual 0.04 1.51 3.61 5.09 6.70 7.62 7.91

Actual as % of Estimate 3.0 29.0 41.0 51.0 66.3 75.4 78.3

1/ Project reduced in scope.2/ Of the original Loan amount of US$10.1 million, US$191,000 was cancellod,

effective 29 August 1983 because of misprocurement which resulted in theexclusion of Motshane 3unior Secondary School. h total of US$1,999 thousandremained undisbu-sed when the Loan Account was closed on 31 December 1985.

3/ According to the Statement of Loans, 31 May 1987, the Borrower's obligation islisted as US$9.46 million, including an exchange adjustment of US$2.86 millionand repaid amount of US$1.31 million. However, cancellation of theundisbursed balance of the Loan proceeds is not shown.

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Other Project Data

Original ActualFirst mention in files 8 Dec 1977Govemment's Application Aug 1979Negotiations 15-17 Oct 1979Board Approval 15 Jan 1980Loan Agreement date 7 Feb 1980Effective date 24 Jun 1980Closing date 303une 1984 31 Dec 1985*

Borrower : The Kingdom of SwazilandExe-cuting Agency : Ministry of EducationFiscal year of Borrower : 1 April - 31 March

Follow-on Project : None

* The loan account was actually closed on 8 August 1986 when theundisbursed-balance was cancelled.

Country Exchange Rate

Name of Currency: Emalangeni (E)

Exchange Rates:

Appraisal Year: (1979) US$1 = E 0.87

Intervening Years: 1981 US$1 = E 0.961982 US$1 = E 1.021983 US$1 = E 1.221984 US$1 = E 1.981985 US$1 = E 2.56

Completion Year: 1986 US$1 = E 2.18

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Mission Data

lUlission Sent Month/ No. of N!o. of Staf f Date of Reportby Year Weeks Persons Week..

Reconnaisance/Identification Bank Apr 1978 n.al/ 2 n.a.

Post-Identification Bank Dec 1978 n.a. n.a. n.a. n.a.Preparation/Appraisal Bank Feb 1979 3.0 4 12.0 n.a.! Post-Appraisal Bank Jul 1979 n.a. n.a. n.a. n.a.

Sub-Total n.a.

Supervision (1) Bank Mar 1980 1.3 2 (A, EP) 2.6 3 Apr 1980Supervision (2) Bank Sep 1980 1.7 2 (A, EP) 3.4 21 Nov 1980Supervision (3) Bank Aug 1981 1.1 2(A, EP) 2.2 16 Nov 1981Supervision (4) Bank Feb 1982 2.3 3 (A, EP, TE) 6.9 22 Apr 1982Supervision (S) Bank Nov 1982 0.9 2 (A, EP) 1.8 3 Jan 1983Supervision (6) Bank Feb 1983 1.4 2 (A, EP) 2.8 13 Apr 1983Supervision (7) Bank Nov 1983 2.3 3 (A, EP, OA) 6.9 30 Dec 1983Supervision (8) Bank Jun 1984 1.0 2 (A, EP) 2.0 10 Aug 1984Supervision (9) Bank Jun 1985 1.0 1 (EP) 1.0 31 Jul 1985Supervision (10) Bank Feb 1986 1.0 1 (A) 1.0 28 Feb 1986

Sub-Total 30.6

Supervision (11) Bank Nov 1986 0.7 1 (T/VE) 0.7 19 Jan 1987(Back-to-OfficeReport)

Completion Unesco Feb 1987 2.0 2 (GE, A) 4.0 Aug 1987

Total 35.3

References:

A = ArchitectEP = Education PlannerGE = General EducatorOA = Operations AssistantTE = Technical EducatorT/VE = Technical/Vocational Educator

1/ n.a. = Not available. Because the Information Centre was in the process ofmoving at the time of the mission to Washington D.C., some files were notavailable. The data provided in this section on missions during projectaenerqtion wprv nhtain-el frnrn nthAr *w rr

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Alocation of Loan Proceeds(US$ equivalent)

Category AOrigiona ActualCAllocation Disbursement

US$ million US$

Civil Works 5.00 5,011,690.79

Furniture 0.40

Equipment and Vehicles 1.40 1,665,21,.65

Studies 0.10 2,593.05

Technical Assistance and Consultants 0.601,230,969.57

Administration 0.10 )

Unallocated 2.50

Total Disbursed 7,910,469.06 (78%)

Cancelled 191,000.00

Undisbursed 1,998,530.94 (22%)

Total of Loan 10.10 10,100,000.00

STAFF NWUT(Staff weeks)

FY 78 79 80 81 82 83 84 85 8s 87 Total

Pro-appraisal 8.6 82.6 - - - - - - - - 90.9

Appraisal - 26.1 11.5 - - - 36.6

Negotiation - - 8.1 - - - - - - - 8.1

Supervision - - 4.8 5.8 11.1 11.1 17.3 4.7 4.2 8.4 62.4

Total 6.5 107.6 22.4 5.8 11.1 11.1 17.3 4.7 4.2 8.4 190.0

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PROJECT COMPLETION REPORT

SWAZILAND

THIRD EDUCATION PROJECT(LOAN 1792^SW)

EVALUATION SUMMARY

Introduction

The Third Education Project (Loan 1792-SW, in the amount ofUS$10.10 million) was identified in Apri. 1978 and soon thereafter wasprepared by the Government. Project appraisal in February 1979 and post-appraisal in July 1979 by the Bank was followed by negotiations in October1979. Total project cost was estimated at US$15.90 million equivalent orEmalangeni 13.83 million, including contingencies. The foreign exchangecost estimate4 at US$10.10 million, representing 63 percent of the totalproject cost, was covered by the Bank loan of the same amount. FollowingBoard approval on January 15, 1980, the Loan Agreement was signed onFebruary 7, 1980. The Loan became effective on June 24, 1980.

The project was originally scheduled to be completed in September1983 and the Closing Date was June 30, 1984. Staff and organizationalproblems in the PIU delayed implementation, complicated by a shortage ofexperienced contractors for civil works. Price changes due to the risingvalue of the US dollar and the shortage of local funds required the reduc-tion of some civil works for primary schools. By December 1984, hcwever,civil works had been substantially ccapleted, except for 68 staff houseswhich, because of a technical error in budgeting, were finished in December1986 with Government funds. Total actual project cost amounted to US$12.74million, about 20 percent less than the appraisal estimate, but the cost inlocal currency was E 18.50 million, about 34 percent more than the apprais-al estimate. The Closing Date had been postponed to December 31, 1985. Ofthe US$10.10 million loan amount, US$7.91 million was disbursed and theloan account vas finally closed on August 8, 1986 when the undisbursedbalance of US$2.19 million was cancelled.

Obiectives and Scope

In accordance with the Government aim of gearing the education andtraining system to be more responsive and relevant to national developmentneeds, the project was designed to improve (a) access and efficiency inprimary and junior secondary education, and (b) the management skills ofcivil servants. In pursuit of the above oLJectives, the project consistedof the following activities:

(a) Civil Works, Equipment and Furniture for:

(i) Primary schools - construction of 31 new schools andexpansion of 12 existi.g schools to provide a total ofabout 11,000 student places; and construction of 203 staffhouses;

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(ii) Junior secondary schools construction of six new schoolsand expansion of nine existing schools to provide a totalof 2,600 student places, and construction of 66 staffhouses;

(iii) William Pitcher Teacher Training College (WPTTC) -expansion of science laboratory and industrial arts work-shop for joint use of WPTTC and Secondary Curriculum Unit(SCU) staff; zonstruction of a new library/cuiriculumresource center adja ent to the WPTTC library to providesupport for the 25 professional staff at the SCU and thePrimary Curriculum Unit (PCU); and

(iv) Swaziland Institute of Management and PublicAdministration (SIMPA) - construction of new offices,classrooms and 26 dormitory places.

(b) Tublication and Distribution of about 1.1 million Textbooksand 78.000 Teachers' Guides for Primary Schools

(c) Technical Assistance. Fifteen man-years of expert servicesin architectural design, procurement and civil works supervi-sion for the Project Implementation Unit. Additional fundswere provided for pre-investment studies to be carried outduring project implementation.

Implementation Experience

Tardiness in streamlining the PIU and in appointing key staff wasresponsible for the initial implementation delay. Although the PIU per-formed reasonably well despite staffing and organizational problems, noattention was given to its institutional development. After three Bank-funded projects over an 11-year period, there appears to be no permanenttrained PIU staff (paras. 2.04-2.05). The rising value of the US dollaragainst the Emalangeni raised local costs and reduced the availability oflocal funds. This led to a 53 percent reduction in the number of primaryschool classrooms constructed, from the project target of 10,880 to 5,126,resulting in gross overcrowding in existing schools and possibly thwartingthe objective of improving access in primary education (para. 4.03). Onthe other hand, while the project succeeded in constructing 95 percent ofthe targeted junior secondary school classrooms, enrollments fell short ofthe appraisal target by 27 percent, thereby implying considerable spaceunderutilization (para. 4.04). Overall, the quality of civil works, equip-ment (including eight vehicles for the Primary Curriculum Unit) andfurniture was satisfactory (paras. 2.14-2.15 and 2.18-2.19). Technicalassistance was used as intended and consultant services were satisfactory(para. 2.20).

Compared with appraisal estimates, civil works, furniture andequipment had cost overruns in local currency, whereas in US dollars therewas a cost underrun in all categories. The gross areas constructed werereduced by 27 percent in primary schools and 13 percent in junior secondaryschools. The reductions accounted for E 1.71 million or US$1.97 million ofthe appraisal estimates. Thus the imputed cost overrun is about 16 percent

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in US dollars and 94 percent in local currency terms (para. 3.03 and Annex4). The PCR does not explain why the areas per student place for primaryschools were increased by 56 percent and those for junior secondary schoolsdecreased by seven percent compared with the appraisal provision. At anyrate, the cost per square meter constructed was 151 percent for primaryschools and 62 percent for junior secondary schools above the apprassalestimates (para. 3.04 and Annex 2).

Results

The PCR declared that the project's educational objectives were"generally achieved, despite some shortfalls" (para. 4.01). This auditconsiders the project to be only partially successful in achieving itsobjectives, based on the evidence provided by the PCR. While enrollmentsin the project primary schools had increased from 5,650 in 1980 to 12,220in 1986, the project had provided only 5,130 new places or 42 percent ofwhat was needed, without taking into account the need to replace facilitiesconsidered inadequate at appraisal (Staff Appraisal Report No.2560-SW,dated October 30, 1979, paras. 2.13-2.14). Using multipurpose rooms andheadmasters' offices as classrooms to accommodate the increased enrollments(para. 4.03) implies a disruption or at least curtailment of those schoolfunctions for which the converted facilities were intended.

'tIe provision of textbooks and teachers' guides was an importantmeans of atldressing the issue of educational relevance and quality, but theproject's success in providing the gross numbers of books is clouded byserious problems in distribution, price and quality of textbooks. Between1979 and 1987 the Government was reported to have published 96 titles and1.75 million books, but there is no information on how many were textbooksand how many teachers' guides (Annex 7). Progress was slow in developingnew curricula and textbooks mainly because of unclear guidelines on educa-tional policy, inadequate staff and lack of sui~Ject panels in some areas(para. 4.09). This audit concurs with the YCR's highlighting of threeissues regarding textbooks and teachers' guides: (a) tardiness of bookdistributior in some caLes half a year behind schedule, which underminedthe purpose of publishing the textbooks; (b) acute textbook shortage insome schools, which appeared to have an adverse impact on student achieve-ment as measured by the Junior Certificate Examination; and (c) the highcost of textbooks, even at subsidized rental rates, which has placed thembeyond the reach of many students (paras. 4.11-4.15). The overall qualityof education and efficiency of the system does not seem to have improved(paras. 4.23-4.24).

In-service training to upgrade the quality of teachers was accele-rated with assistance from an oversess agency, using a "cascade" system oftraining. Regrettably there is no information on the number of teachersupgraded. The scale of in-service training, however, is limited as long asthe Manzini training center is used for textbook storage instead of teachertraining (para. 4.21). The in-service training of civil servants by SIMPAhas not been successful mainly because of fundamental problems arisingfroms (a) lack of a clear mandate for SIMPA and autonomy to perform itsfunctions; (b) lack of trained staff; and (c) absence of appropriate train-ing materials (para. 4.26).

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Sustainability

While the project primary and junior secondary schools, asGovernment institutions meeting a basic need, have a reasonable assuranceof being sustained, they face the system-wide problem of inadequate fundsfor physical maintenance. Part of the problem stems from the fact thatmaintenance is in the hands of the Ministry of Works and Communications(MOWC) which is inadequately staffed, equipped and funded to carry out itsresponsibilities (para. 2.17). Unless the main issues facing SIMPA areadequately addressed quickly, the in-service training of civil servants isunlikely to have any impact on the administrative system.

Findings and Lessons

The following findings and lessons supplement those presented bythe PCR (paras. 6.01-6.06):

(a) The appointment of all essential qualified staff in the PIUshould be a condition of loan effectiveness to avoid costlyimplementation delays (paras. 2.04-2.05);

(b) Facilities for storage and distribution should be in placebefore the actual publication of textbooks to avoid inordi-nate delays in delivery of books to schools (para. 4.11); and

(c) The role and responsibilities of a major training institutionsuch as SIMPA should be clearly spelt out, if necessary bylegislation, and-adequately staffed and equipped as part ofproject design to ensure its viability (paras. 4.26-4.27).

CHAPTER I

PRO3ECT BACKGROUND

Socio-Economic Setting

1.01 The Kingdom of Swaziland, a land-locked country lying between theRepublic of South Africa and Mozambique, is one of the smallest countries inAfrica. It has an area of about 17,000 square kilometers. The 1986 Census gavea population figure of 715,000 compared with the 520,000 estimated at the timeof appraisal in 1979. Topographically there are three regions: the Highveld,consisting of about 32 per cent of total land area and noted for its wet mountainsand forest; the Middleveld, about 28 per cent of total area, composed mostly ofvalleys and most advanced in agriculture; and the Lowveld, ahout 37 per cent oftotal area, not too elevated and here cattle production is well advanced. Thecountry is divided into four administrative regions, namely, Hhohho in the north,Manzini in the central west, Shiselweni in the south and Lubombo in the east.

1.02 Two district land tenure systems exist in Swaziland. Swazi NationalLand (SNL), accounts for about 56 per cent of the rural land area, the ownershipof which is vested in the King in trust for the Swazi nation. Local chiefsadminister land use and allocate the land. The remaining 44 per cent of the totalland area is freehold land, much of which is devoted to large commercial estatesthat produce cash crops and exploit forestry resources, all for export.

1.03 Swaziland is a member of the Southern African Customs Union (SACU)1/and the Rand Monetary Area (RMA). Thus the Swazi economy is highlyvulnerable to developments in and the interests of the Republic of South Africa,since about 90 per cent of Swaziland imports originate in, or pass through SouthAfrica which itself absorbs a quarter of the Swaziland merchandise exports.

1.04 Agriculture and forestry are the largest components of the Swazieconomy, accounting directly for 29 per cent of GDP in 1977, compared with 25per cent in 1984. The manufacturing sector is primarily based upon processingagricultural and forestry products for export and accounted for 60 per cent oftotal exports in 1977. The industrial sector accounted for about 25 per cent ofGDP in 1977 compared with 22 per cent in 1984. Swaziland has a rapidly growingmodern sector which has coexisted with a largely stagnant, traditional, primarilyrural one, which has barely kept pace with the population growth, of 2.8 per centper year in 1977 and 3.6 per cent in 1985. About 48 per cent of the population isunder the age of 15 and about 49 per cent is of working age (15 - 64 years). Thelabour force is growing even more rapidly than the population as a whole. Percapita income in 1986 was about US$500.

1.05 Economic development in Swaziland is constrained by (a) lowproductivity on SNL; (b) shortage of skilled manpower; (c) rising unemploymentin the face of growing population pressures; and (d) a limited capacity to planand implement an appropriate development strategy.

1/ Other members are Botswana, Lesotho and the Republic of South Africa.

Sector Setting

Primary Education

1.06 The major problem of primary education, as seen at appraisal when theoverall enrolment ratio was estimated at 92 per centl/, was the fact that only53 per cent of all primary schools offered the full seven-year primary cyclz. Itwas considered necessary, therefore, to provide a full primary education (sevenyears) to all children, especially those in the poorest and most sparsely pouulatedareas and, at the same time, improve the efficiency and quality of primaryeducation and its relevance to national needs.

1.07 The appraisal mission also felt that excessive walking distances to thoseprimary schools with the full seven-year cycle _nd the high cost of the fewavailable textbooks both contributed to high dropout. Furthermore, the importedtextbooks had few references to the social, political, economic and geographiccontext of Swaziland. In this regard, considerable efforts had been made by aPrimary Curriculum Unit (PCU), established in 1972, to revise the curriculumand develop appropriate leaming materials, including textbooks, workbooks andteachers' guides and appropriate teacher training programmes. All of theseactivities needed further development.

Secondary Education

1.08 At the junior secondary level, the major problem identified was lack ofstudent places to respond to the high social demand. About two thirds of thosecompleting primary schools entered junior secondary schools which, in 1977,enrolled 40 per cent (15,900) of the population aged 13 to 15. Because of ashortage of places, junior secondary school directors restricted entrance to theirschools on the basis of geographic proximity and/or examination scores. Theneed for physical expansion was felt to be acute.

1.09 Although intemal efficiency was relatively high, the quality ofinstruction, especially in science and training in practical subjects, was felt to bein need of strengthening. The curriculum was seen as having been designed toprepare students for further study at the senior secondary level.

1.10 As with the primary programme, imported textbooks were costly and hadlimited relevance to the Swazi environment. A Secondary Curriculum Unit(SCU), established in 1978, had reformed the junior secondary school curriculumemphasizing science, agriculture, industrial arts, home economics, and"development studies". This reform was supposed to provide educationalexperiences valuable for those who would terminate their schooling at this level,preparing them for a more active participation in Swazi economic and social life.However, large scale implementation of these programmes required the provisionof appropriate facilities and training of teachers,

1/ This was on the basis of a population estimate of 520,000 (para. 1.01).

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Teachers

1.11 The appraisal mission noted that about 74 per cent of the 2,700 primaryschool teachers in 1977 were qualified. However, it was estimated that, by 1985,there would be a shortfall of over 700 teachers. The Government intended toexpand enrolments in teacher training and provide in-service teacher training.About half of all secondary school teachers were fully qualified but 80 per centof the latter were expatriates. It was estimated that about 150 new teacherswould have to be trained locally per year up to about 1987 in order to reducedependence on expatriates. The existing programme to train junior secondaryteachers was inadequate and attempts were being made to improve it.

Curriculum Development and In-Service Training

1.12 The PCU and the SCU had developed several curricula and a largevolume of learning materials. First grade Siswati and science textbooks hadalready been tested and were ready for distribution by January 1980 along withthe accompanying teachers' guides. However, facilities were inadequate forfurther curriculum development and for a necessary increase of 25 professionalstaff working in the two curricula centres. It was foreseen that all teacherswould need in-service training to be introduced to the new curricula and theirteaching skills would have to be upgraded in order to use the new learningmaterials effectively. It was therefore necessary to provide additional facilities,especially for science and practical subjects, at the William Pitcher TeacherTraining College (WPTTC).

Training of Civil Servants

1.13 The Government had recognized the need, at appraisal, to upgrade its7,000 civil servants and antici?ated planning a large scale programme to trainevery employee. The Institute for Development Management (IDM), located inBotswana, Lesotho and Swaziland, had not been sufficiently responsive togovernment training needs. However, the Swaziland Institute for Managementand Public Administration (SIMPA), the agency responsible for training civilservants, did not have adequate physical facilities.

Formulation of the Project

1.14 The Project was formulated o.ver a period of 19 months. Initial Bankdiscussions with the Government on a possible Third Education Project tookplace in March 1978, following preparation of the draft education chapter for theThird National Development Plan and the completion of a manpower survey.During that time three project items were identified: (i) improvement andexpansion of primary schools; (ii) provision of science and practical facilities forjunior secondary schools and construction of a small number of new juniorsecondary schools in disadvantaged areas; and (iii) construction of one or tworegional vocational training centres. The high cost (E 7,876,557) of these centrestogether with a supporting Technical Teacher Training Centre may have beenamong the reasons why they were not included in the eventual project. Extensivefollow-up discussions were held with the Ministry of Education (MOE) and theDeputy Prime Minister's Office during a Bank supervision mission in April 1978,

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and agreement was reached in principle on the overall scope of the Project. InJuly 1978, a Bank consultant assisted government officials in initiating a schoollocation planning exercise necessary for the primary school component of theproject. In December 1978, a Bank mission reviewed preparation activities andidentified two additional project components which would: (i) assist primary andsecondary curriculum development and production of associated teachingmaterials; and (ii) assist in improving in-service training of Government officials.To assist in project preparation the Government utilized the services of a localconsultant who was working under contract at the Project Unit. These serviceswere financed under the Second Education Project.

1.15 With preparation sufficiently advanced, a four-man BankPreparation/Appraisal Mission visited the country in early February 1979,followed by a Post-appraisal Mission in July 1979. Negotiations were held inWashington between 15 and 17 October 1979, followed by Board approval of aLoan of US$10.1 million on 15 January 1980. The Loan Agreement was signed on7 February 1980 and became effective on 24 June 1980.

1.16 The Project prepared was in harmony with the country's education needsand with the Government's objectives and development strategy.

Project Justificatiork

1.17 The Project was designed to assist the Kingdom of Swaziland make itseducation and training systems more responsive and relevant to nationaldeveilopmeant needs, with the view to ensuring that its civil servants wouldcontribute more effectively to national development. Furthermore, since mostschools did not have sufficient staff housing, which was necessary (particularly inrural areas) to attract and retain qualified staff, the Project provided for staffhousing. Various studies were also included to provide useful data needed forfuture planning of development projects.

Pro}ect Objectives and Description

Project Objectives

1.18 The objectives of the Project as stated in the Appraisal Report were toassist the Government in improving: (i) access to and efficiency of primary andjunior secondary education and its relevance to national needs; and (ii) themanagement capacity of civil servants.

Components

1.19 In order to attain these objectives, the Project, as finally agreed,consisted of the following:

(a) Primary Schools

Construction, furnishing and equipping of (i) about 31 new andexpansion of 12 existing primary schools to provide about 11,000student places at the 43 schools and (ii) 156 two-bedroom housesand about 47 bachelor (one-bedroom) houses.

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(b) Junior Secondary SchoolsConstruction, furnishing and equipping of (i) six new juniorsecondary schools and expansion and equipping of nine existingones, for about 2,600 student places; and (ii) 45 three-bedroom and

J two-bedroom staff houses for the 15 schools.(c) *iextbooks

Provision of about 1.1 million textbooks and 78,000 teachers' guidesto primary schools.

(d) Curriculum Development

Expansion of physical facilities for curriculum development and forin-service training at WPTTC in Manzini.

(e) Expansion of SIMPAConstruction, furnishing and equipping offices, classroorns andabout 26 semi-private dormitory places.

(f) Te&rical Assistance

15 main/years of expert services to the Project ImplementationUnit (PIU) for architectural design, procurement and supervision ofconstruction.

(g) Studies

(i) Pre-investment studies included a study of primary schoolfees and a study of needs for expanded vocational training;

(ii) evaluation studies were to include first, the pre-testing oflearning materials and secondly, the measurement of theoverall results of the non-formal education programmesupported by the First Education Project and of the primaryand junior secondary education reform;

(iii) a tracer study of secondary school leavers in terms of theiremployment and performance;

(iv) a school mapping exercise to facilitate proper schoollocations;

(v) a manpower study with emphasis on skilled manpower andtraining requirements of the country.

All of these studies were expected to provide useful data forplanning future educational development projects, responsive tothe manpower requirements and training needs of the country.

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Anticipated Benefits and Risks

1.20 The Appraisal Report identified the expected benefits of the Project as:(i) improved access +o primary and secondary education especially in rural areas;(ii) better provision of the basic skills needed by school leavers for contributingto social and economic development; (iii) institution building in preparingappropriate curricula and learning materials, and in project management; and(iv) strengthening of management and public administration.

1.21 In the view of the appraisal team, with the Government's fullcommitment to project goals and the active assistance of numerous bilateral andmultilateral agencies which were operating in the country, no special risks wereto be foreseen. However, some doubts were expressed about the quality ofpersonnel and programmes at SIMPA and their capacity to achieve certainproject goals.

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CHAPTER 11

PROJECT IMPLEMENTATION

Overview

2.01 The project was originally scheduled to be completed in four years buttook five and a half years. Instead of the original Closing Date of 30 June 1984,the disbursement of Loan proceeds ceased on 8 August 1986 when unusedproceeds totalling US$2.2 million of the US$10.1 million Loan were cancelled.Project management and implementation were efficient and virtually allcovenants were fulfilled. Civil works, delayed by some two years, were reducedin scope but were completed as finally agreed and the quality of constructionwas good. Furniture and equipment were appropriate.

2.02 By and large, the objectives of the project were achieved and theservices of consultants were overall satisfactory. The final cost of the projectas implemented was US$12.7 million compared to US$15.9 estimated atappraisal.

Project Management

2.03 The PIU, established within the MOE to administer the implementationof the first and second Education projects, was also responsible for the thirdEducation project.

2.04 Staffing and Organization Problems. From 1980 to the end of 1981 therewere two separate PlUs. The Primary School Building Unit, established underthe SIDA/Unesco primary school building project, was directed by an expatriateand the Secondary School Unit had a Swazi director. During this period only oneproject primary school and two junior secondary schools were built. In early1982, the two units were unified into a single PIU. However, a Swazi directorand expatriate deputy director were not appointed until 18 months later becauseof differences in views within the MOE concerning the appropriateness of thequalifications of the candidates. The rest of the staff included a Swaziaccountant, at one tim.e three expatriate architects, under a chief architect, anexpatriate procurement officer and supporting staff. The PIU was assisted by alocally based firm of quantity surveyors and a local firm of water supplyengineers. Other supporting staff included an expatriate clerk of works, two UNvolunteers and four Swazis recruited for training as building supervisors (one foreach administrative district). Tender documents and contract awards werecompleted by December 1983, about two years behind schedule. This delay wasdue to the late appointment of the architectural staff.

2.05 In spite of initial delays and staffing problems, the overall performanceof the PIU was satisfactory. The expansion to the physical facilities for thePrimary and Secondary Curriculum Units, the new In-service Training Centre andSIMPA were carried out by MOWC more or less on time. The Borrower preparedand submitted regular semi-annual reports in accordance with the Loanconditions. These reports were informative and generally on time. However,

8 -

owing to the Project Director's absence abroad on training, such reports were notsubmitted during the period from June 1984 to December 1985.

2.06 The present PIU, which is responsible for all MOE schools has beenreduced to the Project director, an accountant, a procurement officer and abuilding supervisor (all Swazi nationals). It is grossly understaffed for theseduties. The Project director's high status is reflected in his direct access to thePrincipal Secretary (PS) in MOE. However, PIU's present staff capability isextremely '.mited. The expatriate technical staff left at the end of theircontracts, without fully trained Swazi nationals available to replace them. Thishas repeated the pattern in the previous two projects where expertise in PIUterminated at the end of each project, leading to a loss of experience gained inproject implementation. The last PIU architect's contract expired in December1985. MOE is willing to appoint an architect in the PIU. However, there are noSwazi architects in the country and the government is reluctant to hire anexpatriate, without external funding. Consequently, the post remains vacant. Ofthe four building superviso s who underwent on-the-job training under expatriatearchitects (supplemented with training courses abroad), only two qualified. Ofthese, one left for the private sector and the other is still with PIU. The lack ofa permanent trained PIU staff after three projects over a period of II years(1975-1986) is a serious problem which should concern the Government and theBank Group. Particularly crucial is the absence of trained Swazi architects.Institutional capacity building should have included the training of an adequatetechnical staff, and provided appropriate salaries and other incentives to retainthem for the long-term educational development task. This benefit was neithersufficiently planned for nor fully realized.

Professional Services and Buildin Design

Sites

2.07 At appraisal, the sites of the existing 22 schools eventually included inthe Project were already owned by the Government (para.1.02). Suitable sitesfor the 31 new primary schools and 16 junior secondary schools were identifiedduring appraisal. Owing to preferences expressed by the community, the site ofone of the junior secondary schools was changed during project implementationwith subsequent Bank approval. In general, the new schools are well sited andadequately laid out with provision for future expansion. However, only 10project primary and six junior secondary schools have access to electricity.Availability of water has been a problem, with frequent breakdowns of the manypumps provided. In a number of schools, water is regularly delivered by tankers.

Design

2.08 In general, PlUs designs for the Project are adequate. The new schoolfacilities (including related staff housing), together with expansion to existingones were undertaken by architects appointed to the PIU, with services providedby local consultants for quantity surveying and structural/mechanicalengineering. Design of extensions to the Primary and Secondary CurriculumUnits, the In-service Training Centre and SIMPA were all undertaken by MOWC.

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Tendering was in accordance with ICB procedures. The 66 staff houses, laterapproved by the Bank for inclusion in the Project, were designed by MOWC andwere tendered locally.

2.09 Schools have concrete floors, load-bearing brick and/or concrete blockwalls, timber roof structures and corrugated asbestos roofing. Teaching spacesare in accordance with the agreed working papers and provide acceptableteaching conditions. Teachers' housing is of an acceptable minimum level ofcomfort and space. However houses designed for married teachers are oftenused as shared accommodation by single teachers, a situation which suggests theneed for design flexibility and adaptability. However, some spaces (e.g.multipurpose rooms, library, etc.) could have been better planned. Initially, themultipurpose space was first approved as a covered area, which later was foundinappropriate and had to be enclosed at additional expense. In some instances,owing to increased enrolment, multipurpose rooms were divided into twoclassrooms by movable partitions. Similarly, in some cases, the headmaster'soffice has been converted to a classroom. A utilization study was dearly neededto find out requirements in relation to existing schools rather than reliance onassumptions made by the architects who were somewhat unfamiliar with thelocal situation. Funds were available to undertake such a study.

2.10 Another issue is the need for school security, to avoid willful damage andtheft. In many instances, communities have undertaken to provide nightwatchmen. Although it should be recognized that it is difficult to designcompletely vandal-proof buildings, it is possible to introduce various designfeatures to ensure increased security. However, in the experience of theGoverment, the best security is provided by strengthening the skills of the schooladministrations in establishing good relations between school and community.

2.11 The new Library/Curriculum Resource Centre, constructed adjacent toWPTTC Library at Manzini, is satisfactory, but the extension to the library isused by the students only for study purposes. Because the Project did not includefunding for books for these shelves, they remained partially empt since projectcompletion. The drainage system is inadequately designed and is frequentlyblocked. The conversion of classrooms into offices has been adequately designedbut the function of these facilities has changed to storage of books andequipment for distribution.

2.12 The design of the In-service Teacher Training Centre at Manzini hasbeen adequately carried out as a self contained building on a clear site. Thetwo-storey building consists of an upper floor of offices and a lower floor oflibrary, workroom and a classroom. Essentially, the lower floor (including theentrance hall) is used for storage of books for distribution. This is a wasteful useof space that was designed for other purposes. There is sufficient space on siteto design and build an appropriate area for the storage and distribution of books.With reasonable foresight, this storage space could have been included in theproject or added to it when the need became clearly urgent.

2.13 The expansion and improvement of SIMPA is adequate, but themultipurpose conference room has severe problem of acoustics. A number ofchanges in utilization have taken place. The two seminar rooms provided havebeen converted to a computer room and a large classroom, respectively. Theconference room is being used as a multipurpose hall. The new offices providedhave been converted to the Principal's office. The library space is adequate but

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has not been sufficiently stocked. The documentation area is currently used forstorage and many of the library shelves remain there unassembled. Of the threeseparate residential blocks provided, one is in a dangerous state of virtualcollapse as a result of settlement and inadequate foundation design. Therefore itis only partly used.

Civil Works and Maintenance

Construction

2.14 The booming construction industry and higher inflation rates in SouthAfrica led to the departure of South African (the only foreign) contractors fromSwaziland. Consequently, only Swazi contractors were able to bid for schoolconstruction works. The construction of the primary and junior schoolcomponents was supervised by PIU architects and the appointed firm of quantitysurveyors (see para. 2.08). Site plans were provided by PIU architects, showinglocation of standard design blocks supplemented with standard detail drawings.Bills of quantities were prepared for each school. Contracts were awarded tosmall local contractors who often required special guidance and advice. Althoughsupervision of construction by PIU architects and quantity surveyors wasadequate, primary schools were delayed by 12 months, while junior secondaryschools were delayed by 30 months. At the primary level, however, there was ashortfall of some 53 per cent in regard to the number of places. Only 5,126places were provided. This shortfall of 5,754 places was due to the reduction inthe number of classrooms at design stage from seven to three because ofincreasing costs, mainly as a result of changes in the exchange rate of thenational currency. Similarly, only three houses per school were built - a total ofonly 121 houses, compared to 200 included originally in the Project.

2.15 Because the contract of the last PIU architect ended in January 1986,supervision, particularly of the 68 remaining houses (completed in December1986), was inadequate. Because of a technical error in budgeting for the 68houses, only the government's financing was included in the budget. When thesefunds were exhausted, there were delays in paying contractors' final certificates.Other project components were more or less completed according to appraisalestimates (see Annex 1). On the whole, contractors performed well and thequality of construction was satisfactory. Table 2.1 shows the facilities as builtby type of institution:

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Table 2.1

Physical Facilities by Type of Institutions

New ExtensionsType of Institutions Facilities to Facilities Total

Appr. Act. Appr. Act. Appr. Act.

a) Prlmary Education:Primary Schools 31 31 12 11 43 42Staff Houses 2001/ 91 - 30 200 121

b) Junior Secondary EducationJunior Secondary Schools 6 6 10 9 16 1SStaff Houses 661/ 30 - 34 66 64

c) Curriculum DevelopmentPrimary CurricAurn Unit - - I I I ISecondary Curriculum Unit - - 1 1 1 1In-Service Training Centre and

District Education Office I I - - I I

d) Management TrainingSIMPA - - 1 1 1 1

1/ Estimated overall.

2.16 The total gross area provided is about 27 per cent less than estimatedappraisal (Annex 2). This is as a result of inflation costs resulting in most casesin providing only three classrooms, Instead of seven as originally agreed, forprimary schools.

Maintenance

2.17 The majority of the buildings are in reasonably good condition. However,MOWC does not have the capability in terms of staff, budget and transport toprovide adequate long, term maintenance of school buildings. Already somebuildings show serious defects without MOWC being able to undertake repairs.For example, MOWC has decided to allow the collapsing residential block ofSIMPA (para. 2.13) to fall completely and then it will be rebuilt. At theCurriculum Resource Centre, for example, the r-oof leaks badly because of aconstruction fault. There are also instances whero~ the toilet facilities for anentire school have not functioned since the building was occupied. A particularproblem is also recurring damage to water pumps which is due to vandalismand/or lack of maintenance. Without a qualified architect in PIU, projectbuildings are likely to deteriorate rapidly with little hope of repair. In the caseof furniture and equipment, MOE is responsible for repairs, but does not haveadequate funds. In some instances, repairs are being undertaken by schoolcommunities, and whe-e possible, this needs to be encouraged and coordinated.Any further project requires to take account of building maintenance and, withthe appointment of appropriate PIU staff, can become the responsibility of thePIU. Future projects need to address the question of a maintenance capability.

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Furniture and Euipment

2.18 Various school inspectors and the procurement consultants, in closecollaboration with PIU, prepared furniture and equipment lists. The consultantsprepared tender documents and supervised the procurement and distribution ofthe goods to the schools. Tendering for furniture and equipment followed ICBprocedures. All furniture was of South Africa origin and all equipment of UKorigin. Furniture and equipment were satisfactorily stored and delivered in timefor the opening of all schools. Where there was a shortage of specializedteachers (particularly in home economics and technical subjects), PIU withheldequipment until teachers were posted to Project schools. Furniture andequipment are generally satisfactory. However, in some schools,particularlywhere the rotating system of classroom use is in force and pupils have not beenallocated specific places, individual desks have been damaged. Plastic chairsneed regular maintenance and repair. The lockers provided are easily broken anddamaged, as keys to locks are frequently lost. Equipment is in generalappropriate to the subjects being taught. However, a frequent complaint fromhead teachers of schools visited by the mission is that the size of classes forhome economics classes is limited to the number of kitchen stoves. A similarconstraint regarding equipment exists in the industrial arts workshop.

Vehicles

2.19 The eight project vehicles for the PCU and the regional In-serviceTraining Centre were provided as originally intended. However, as projectvehicles are now more than five years old, repair and maintenance is of primeimportance. Moreover, there has been a constant increase over the years in thecost of repairs and maintenance. Consequently, adequate funds are not availablefor repair and maintenance. It would have been helpful if the Project hadincluded funds for a stock of essential spare parts.

Consultants and Technical Assistance

2.20 The technical assistance provision in the Project was used as intended tohire four staff members for the PIU (two expatriates and two local); forarchitectural design, procurement and supervision of construction, a seniorarchitect and an architect assistant (from June 1980 to January 1984) and twoSwazi draftsmen on consultant contracts (April 1983 to September 1984 andSeptember 1984 to December 1985, respectively). The coordinator/chiefarchitect, the assistant architect, the clerk of works, and two buildingsupervisors (UN Volunteers) were all funded by Swedish InternationalDevelopment Agency (SIDA) and Unesco was the executing agency. The servicesof the chief architect were terminated in june 1985. Quantity surveying andstructu.al/mechanical services were carried out satisfactorily by locally basedfirms. The services of consultants were overall satisfactory.

Covenants

2.21 All covenants have been satisfactorily fulfilled with one exception(Annex 3). There was no architect (as was required under Section 3.05 of theLoan Agreement) in the PIU during the last 12 months of construction.

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CHAPTER M1

COSTS AND DISBURSEMENTS

ProLect Costs and Financng

3.01 The total estimated cost for the Project (including contingencies andexcluding taxes) at appraisal was US$15.9 million, the equivalent of E 13.8million. The Bank financing of US$10.1 million was expected to cover 63.5 percent of total costs. As implemented, the final cost of the Project was US$12.7million (E 18.5 million), about 34 per cent higher than the appraisal estimate inlocal currency and 20 per cent lower in US dollars. The Bank financed 62.3 percent of the actual costs, with the Government covering the remainder.

3.02 A detailed comparison of appraisal estimates and actual costs bycategories and items, expressed in local currency and in US dollars, is shown inTable 3.1.

Table 3.1

Iionect Costs by Categories in Millions_8 contingencies and taxes)

Appraisal Actual % DifferenceCategory __ _

E US$ E US$ E US$

1. Civil Works 9.05 10.40 13.60 9.30 + 50 - 11

2. Furniture 0.52 0.60 0.90 0.60 + 73 -

3. Equipment, Textbooks,Vehicles 1.83 2.10 2.00 1.40 + 9 - 33

4. Technical Assistance,StudiesandEvaluation 1.98 2.28 1.70 1.24 - 14 - 45

5. Administration 0.45 0.52 0.30 0.20 - 33 - 62

Total 13.83 15.90 18.50 12.74 + 34 - 20

3.03 As comoared with appraisal estimates, including contingencies, three majorcategories had cost overruns in terms of local currency, whereas, in US dollarcurrency terms, there were cost underruns in all five categories. The differenceaccording to currency is explained by the rise of the dollar relative to Emalangeni.The Project itself was reduced in scale by 27 per cent in gross area in primaryschools and 13 per cent in junior secondary schools. These reductions accountedfor E 1.71 million or US$1 J7 million of the original total cost estimates. Thus theimputed cost overrun is of the order of 16 per cent in US dollar terms and 94 percent in local currency terms. A comparison of appraisal estimates and actualcapital cost for physical facilities, furniture, equipment, professional services andtechnical assistance in US dollars is shown in Annex 4.

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Areas and Cost per Student Place

J.04 In comparison to appraisal expectations, areas per student place forprimary schools provided under the Project increased by 56 per cent. Areas perstudent place for junior secondary schools appear to have decreased by some sevenper cent. In terms of local currency, there was an overall cost increase per squaremeter above appraisal estimates, for both primary and junior secondary schools, of151 and 62 per cent respectively. Details on the above ire provided in Annex 2.

Disbursements

3.05 Final disbursement was made and the Loan Account dosed on 8 August1986. US$7,910,469.06 were disbursed out of a Loan of US$10.1 million. Acomparison of the original estimation and actual disbursement of the Loanproceeds is given in the Disbursement Table in Annex 5. The disbursement lagsaccurately reflected the reduction in the scope of the Project and the delays inproject execution.

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CHAPTER IV

INITIAL EDUCATION AND TRAINING OUTCOMES

Overview

4.01 The educational objectives of the Project were generally achieved,despite some shortfalls. Total primary enrolment in project schools in 1986exceeded the 1984 appraisal target by 1.2 per cent, although the number ofprimary student places was only 47 per cent of the originally agreed number.Ninety five per cent of the target of places at the junior secondary level wasprovided, but there was a 27 per cent shortfall in enrolment. Relevance tonational needs was improved through the continued revision of the curriculumand the publication and distribution of new textbooks and teachers' guides.However, this success is still clouded by problems of distribution and of pupilcapacity to buy the books. It is too early to determine the educational impact ofthis project upon the efficiency of the educational system. Recent studiesindicate that there has not been any substantial improvement in pass rates onexaminations during the last few years, and there is a general increase Inrepetition rates, but drop-out rates have stabilized. Taking account especially ofthe economic trends in the region, the problem of provision of jobs for schoolleavers may become more difficult. Teachers were upgraded through severalseminars and workshops, and are in general sufficient in number, but there Is ashortage of qualified teachers for science and practical subjects.

4.02 In regard to the training of civil servants, the number trained at SIMPAfell far below appraisal estimates of 1,500 per annum. This was due mainly tostaff shortage at SIMPA caused by the lack of salary competitiveness. Four ofthe expected five studies completed were found useful in planning futuredevelopment projects, but the study on the financing and distribution oftextbooks was incomplete and deficient in that it did not provide for a smoothand economical distribution system.

Improving Access to Primary Education

4.03 The Project provided 5,126 or 47 per cent of the appraisal target of10,880 places in primary schools. Enrolment in 1986 in project schools exceededthe 1984 appraisal targets by 1.2 per cent (para. 2.14). The schools were able toaccommodate this Increase in enrolment by converting some multipurpose roomsand some headmasters offices into classrooms. Annex 6, summarized below,presents enrolment in 1980, used by appraisal as the base data, compared withappraisal 1984 targets and actual places provided and enrolment in 1986. Thedifferences in enrolment from school to school are considerable. A study of thereasons for this has not as yet been made.

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Table 4.1

Number of Places and Enrolment in Project Primary Schools

1980 1984 1986

No. of Appr. Appr. No. of Total Actual ActualDistrict Existing Enrol Target Target New No. of Places Enrol-

Schools ment Places Enrol. Schools Schools Provided ment

Hhohho 4 1,937 2,280 3,760 8 12 n.a.l/ 4,238Lumbombo 4 1,598 2,320 2,520 6 10 n.a. 2,238Shiselweni 4 1,363 2,880 3,280 7 11 n.a. 3,702Manzini 0 752 2,800 2,520 10 10 n.a. 2,045

Total 12 5,650 10,880 12,080 31 432/ 5,126 12,223

Improving Access to Junior Secondary Schools

4.04 At the junior secondary level, 95 per cent of the originally plannedstudent places (for Form I to 111) was provided. However, there was under-utilization of the facilities. Enrolment in 1980 was 2,164 in the 10 existingschools compared to the 1984 target enrolment of 4,680 students for the 15schools3/. In 1986 only 3,433 students were enrolled in the 15 project schools, a27 per cent shortfall. The mission could not ascertain whether the reason for theshortfall was over-estimation at appraisal, migration of parents in search ofwork, or both. Had a detailed study been undertaken as to the needs at primaryand junior secondary levels, when the reduction in project scope was beingconducted, it might have been found more appropriate to reduce the size of somejunior secondary schools instead of scaling down all of the primary schools. Theschool mapping study4t/, completed in August 1979, could have been quite usefulin this respect. Details of enroiment are given in Annex 6. At this level,however, there was less variation from school to school in the ratio of enrolmentto places. The Government view is that the underutilization of the buildingsstems as well from the inadequate exposure of school administrators to therotating use of classroom space. The seminars intended to acquaint them withthis system were inadequate and not properly planned and did not include theschool supervisors; consequently these latter cannot provide the assistance tothe school administrators that they should provide on this matter.

I/ Data were not availatle at the PIU on the schools which had beenreduced in size and efforts to obtain the information from the MOWCfailed.

2/ Schools were completed on 31 December, 1985. One was incomplete.321 One of the 16 planned schools was not built, reducing the original 5,040

expected enrolment by 360 to 4,680.4/ This study was used as a criterion in identifying the locations of the 43

new schools.

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Curriculun and Textbooks Development

4.05 The PCU, established in 1972, and the SCU, established in 1978, weremerged in May 1983 to form the National Curriculum Centre (NCC). TheProject provided a library/curriculum resource centre (para. 2.11) on thepremises of the WPTTC to be used jointly by the WPTTC and NCC staff.

Primary

4.06 Relevance of curricula to national needs was improved through therevised primary curriculum, publication and distribution of new primarytextbooks, and teachers' guides by the NCC. Each curriculum designer workedclo,ely with the respective subject panel in developing the syllabus, teachers'guides and textbooks which were then examined by the review committee of thepanel, prior to being sent to the 17 pilot schools for a two-year trial period.Subsequent revision incorporated the feedback from the field trial. The MOEfinally approved the manuscripts and had them published and distributednationwide. New curricula have been developed for all primary subjects, butpractical arts materials are still being pilot-tested. The published textbooks,workbooks and teachers' guides that have been introduced in the nation's primaryschools are given in Table 4.2.

Table 4.2

Primary Materials Published and Introducedby Year and Grade Level

Subject 1980 1981 1982 1983 1984 1985 1986

Siswati I II III IV V VI VIIScience I 11 III IV V VI VIlSocial Studies III IV V VI VIIMathematics I 11 III IV VEnglish I 11

4.07 Practical arts materials in the areas of agriculture, art and crafts, homeeconomics, physical education and music have been produced and are being triedout in the 17 pilot schools. The centre hopes to introduce for the first time inpilot schools trial materials in religious education in 1987.

Secondary

4.08 At the secondary level, the development of relevant educationalmaterials has not progressed as fast as has been the case at primary level. Amajor reason was that when Unesco's involvement in the Secondary CurriculumProject ended in 1982 (a year before the NCC was established), project activitiesdecreased. Only four secondary subjects were to be revised: integrated scienceand integrated home economics do not have pilot schools. The new curriculummaterials for these two subjects are used nationwide immediately afterdevelopment. New curriculum materials for commercial studies have been

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developed for Form I only and are now being tested in 50 schools. Developmentstudies, an integrated course of history, geography, and civics emphazing issuesin Swaziland's social and economic development, has only six pilot schools andrevision has also been slow.

4.09 Progress in developing new curricula and textbooks has been generallyslow mainly because of: (i) unclear guidelines on educational policy;(ii) inadequate staff; and (iii) lack of subject panels in some areas. The missionurges that the recommendation made by the 1985 National Education ReviewCommission (NERCOM) be implemented as soon as possible. This would involve:(i) reactivating and reinforcing the curriculum co-ordinating committee;(ii) establishing, filling and supporting the required number of subject panelposts; and (iii) teachers' colleges working more closely with the NCC.

4.10 However, the mission was assured by the MOE that efforts would bemade to speed up curriculum development at this level. The NCC has set 1991as the date for having curriculum development at primary school levelcompleted. Secondary textbooks and teachers' guides have not yet beenstandardized, revised and published. They are still being imported and sold bycommercial firms. Individual headmasters select the books they wish to use intheir respective schools, and this results in a wide variation in prices andstandards.

Textbooks

4.11 Three issues have emerged from the textbook development experience.The first is that distribution from Regional Education Offices (REO) has beenabout a half year behind schedule in some places because of a shortage of staff.An attempt to resolve this problem has been made in 1987 by the publisherproviding funds for one Junior Certificate holder to assist at each REO office.From 1979 to 1987 the Government published 96 titles and about 1,748,149 booksat a cost of about E 2,715,223. Details are given in Annex 7. A list of studentbooks by grade and cost was not available.

4.12 The second issue is the impact of books on the performance of studentsin school. For example, in a primary school where students had all their booksand supplementary learning materials, 11 scored first-class passes and foursecond-class on the Swaziland Primary School Certificate (SPC) examination. Onthe other hand, where about half of the students at the junior secondary had nobooks, one student scored a first-class pass, nine a second-class, 22 a third-class,and 19 failed the Junior Certificate Examination (JC)!I. This 37 per cent failureis alarming and appropriate steps are needed to alleviate the situation. Theprincipal attributed the lack of textbooks as the major academic problem in thatschool. A shortage of books is more acute at the junior secondary level.According to the school mapping study (published in 1986) 12,600 primary schoolpupils and over 3,000 secondary students did not have individ"al textbooks. Thissituation is a serious drawback and impinges upon the quality of educationreceived by those without the required textbooks. An evaluation of the impactof the books on learning is urgently needed as a basis for a more informed policyon funding priorities.

1/ The mission could not obtain comparable data for primary and juniorsecondary school.

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4.13 The third issue is the high cost of textbooks and the ability of students topurchase them. At appraisal the high cost of textbooks was identified as a majorproblem (paras. 1.07 and 1.10). It was expected that by publishing books locally,students would be able to afford the price. Under the Project a sufficientnumber of books for all primary schools has been produced. Since most childrenare unable to purchase the books at cost price, the Government has introduced arental system of one fourth of the cost price per year per book.

4.14 However, the mission found a variety of patterns in regard to making thebooks available: one school rented all the books according to Governmentregulations; another school rented only the most expensive ones - social science,mathematics, and science; still two schools included the cost of all the books inthe annual charges levied on pupils. Some schools covered the books with clearplastic material to ensure greater durability. At one rural primary school, themission was informed that the rent for a set of books was E 50 or US$26.00; forthe secondary school it was E 200 or US$105. These are formidable amounts. In1987 there was a revised version of third grade social science. This seemed tohave posed a financial problem because copies of the previous version were onhand still in some schools which had fully paid for the first version. This alsoplaces an additional economic strain on students.

4.15 Considering the fact that most families have at least three children inschool, the total cost for books is far be-ond their ability to pay, especially ifstudents are at both school levels and in the rural areas. Even at the one fourthrental price, many students cannot afford to rent the books and therefore gowithout any. A provision for this group of children should have been included inthe financing and distribution plan, which seem not to have recognized theseriousness of the problem of domestic resource and its negative impact onlearning. This is a serious problem that requires the Government's immediateattention. It is therefore necessary that Government reviews the rental systemin force with the view to ensuring that each student would have a set of books.This may involve distributing books, free of charge, to all rural schools.

Impact of In-Service Teacher Training

4.16 The expansion of 1.hysical facilities for in-service teacher training at theWPTTC (para. 1.12) and the cnnetruction of an in-service teacher training centrein Manzini were intended to improve the academic qualification of teachers andincrease their skills in presenting materials and teaching methods.

4.17 A formal in-service teacher training prejcamme sponsored byUNDP/Unesco began in 1975 as an extension of a previous 1972 tJNDP/Unescoproject. At the end of that project in mid-1979 about 1,100 teachers (nearly halfof the total teaching force in primary schools) had passed through theprogramme. This project was based at the WPTTC which continued to providein-service training on a reduced scale until the arrival of the Ohio Universitycontract team in May 1984.

- 20 -

4.18 The arrival of the Ohio team in-service advisor in January 1985 hasresulted in the in-service activities being coordinated on a national basis, usingthe 'multiplier effect' principle. Consequently, the team works with 40 selectedschools for each of the four regions, giving a total of 160 schools andapproximately 1,600 teachers coordinated by 10 District In-Service EducationSpecialist (DIES) and 20 Local In-Service Teachers (LITS). From December 1985through November 1986, the Ohio University personnel have conducted over 20regional workshops which led to over 1,700 individual school workshops.

4.19 As the Permanent Secretary of the MOE observed, ...'enthusiasm for thisin-service programme still remains high, and in-service teacher specialists havebecome more skilled in presenting materials and teaching methods for fellowteachers in their local workshops. These workshops have changed the attitude ofteachers towards inspectors...'l/. Furthermore, in his 1985 report No. three, thechief of party of the Ohio team declared, '...Never has this Chief of Party seensuch commitment and enthusiasm for an in-service programme'.

4.20 In addition, in-service training through workshops is an integral part ofthe NCC activities, organized by the teacher education component, introducingpilot school teachers to new materials, obtaining feedback, synthesizingfeedback for revision of materials and familiarizing in-service teachers with newsyllabi (see Annex 8) to enable them to introduce these curricula in the schools.Within recent years there has been an increase in momentum regarding upgradingof teachers. How much of this was attributed to the Third Education Project isnot clear. However, NCC now operates four types of workshops and seminars(Annex 8), but no data were available to the mission on the numbers held andnumbers of participants.

4.21 Despite these achievements, in-service training on a larger scale hasbeen limited by the use of the in-service training centre in Manzini for bookstorage. Unless a more efficient book distribution system is established oranother storage space be provided, in-service training at this centre is still a farway off.

4.22 Other efforts to upgrade the quality of teachers include: (i) cooperationamong teacher training Colleges,,the Ohio University team and the NCC in theareas of curriculum development and in-service and pre-service teachereducation; (ii) assistance by the Ohio University team to the Faculty ofEducation of the University of Swaziland in upgrading its curriculum and degreeprogrammes, including establishing a bachelor's degree programme in primaryeducation which in 1986, had seven students in the first year and four in thesecond year, and (iii) MOE policy, announcing in August 1986 that from 1991 allteacher educators at the training colleges must possess a bachelor's degree.

1/ Speech by the Permanent Secretary, MOE, at the official opening of theDIES workshop: 'School for the Deaf', 19 January 1986.

- 21 -

Efficiency

4.23 It is too early to assess the impact of the qualitative changes now beingintroduced in the system upon its internal efficiency, as measured by repetitionand drop-out rates, and passes on examinations. Two studiesi/ conducted in 1986included the internal efficiency of the education system. The first study foundthat there was a general increase in the repetition rates at both primary andsecondary level since 1975 with the inidenre of repeating being 12.64 per centof the total primary enrolment, compared with 6.32 per cent at the secondarylevel. On the other hand, drop-out rates have stabilized at all levels during thelast decade. The second study indicated that the 'qualitative changes introducedin the system apnarently have not made a major impact on improving itsretention capacity'.

4.24 Examination results have become stagnant over the last decade, showingvery little change in the pass rates at the primary and junior secondary levels;for example, a total pass of 72.7 per cent in 1985 compared with 72.2 per cent in1986 at the primary level, and 63.2 per cent in 1985 at the junior secondary levelcompared with 63.5 per cent in 1986.

4.25 A study of the internal efficiency of the system and the impact of thequalitative changes now being introducvd could be better determined when all

|. subjects have been introduced in all grades and when a cohort of students hasgone from grade one through seven.

Training of Civil Servants (SIMPA)

4.26 The Project provided additional physical facilities such as classrooms,offices, residential quarters and an extension to the library at SIMPA in theexpectation that certain other measures to strengthen the institution could betaken with bilateral assistance. This item has been a failure in a large measure.The physical facilities have been provided. However, one of the three dormitoryblocks is unsafe and useless. Moreover, as one report indicated, SIMPA is still inneed of accommodation and physical facilities. The key issue facing SIMPA,however, is that it is operating at a low level of efficiency (about 25 per ceht ofexpected outputs, see Appendix) because of certain fundamental problems whichhave been identified in two recent studiesz/:

(i) lack of clear mandate and the autonomy to perform its functions;

(ii) lack of trained staff including staff at its management level; and

(iii) the absence of appropriate training materials (see Appendix).

1/ 'Swaziland: School Mapping/Micro Planning in Education', Ministry ofEducation, 1986. 'Wastage in the Education System', Ministry ofEducation 1986.

2/ Michael I. Bentil, Consultant: Personnel and Manpower Development inPublic Services, pages 15-16, May-June 1985.

Botswana, Lesotho and Swaziland (BLS). Study of Public AdministrationManagement: Issues and Training Needs (Volume IV: Swaziland), April21, 1986, Ed;ication and Mlanpower Division, Eastern and Southern AfricaRegion, The World bank, Washington DC.

- 22 -

4.27 In this context it is clear that the Project priorities were misplaced. Notonly was the assumption about adequate assistance from some other sourcesflawed but no investment in physical plant enjoyed higher priority than a morevigorous effort to place the institution on a sound opera,ing basis, includingconditions about autonomy, the direct financing of an adequate staffdevelopment plan, including education and training and provision for the libraryand for preparation of software.

4.28 Nevertheless, even with its current difficulties, potential exists atSIMPA. In early 1981, SIMPA carried out an extensive study of training needs inthe Civil Service with the view to improving its own programme in response toidentified needs. This study led to SIMPA preparing a document entitled'Developing SIMPA's Capabilities - Suggested Areas for Assistance', March 1985.A second study conducted by SIMPA was 'Planning and Management SkillAcquisition: A Study of Training Needs in Broad-Casting Services of Swaziland'.In collaboration with the Division of Extra-mural Services of the University ofSwaziland, and other organizations, SIMPA made an assessment of private sectortraining needs in large scale industries. Although the outcome of these studies isnot yet known, they demonstrate SIMPA's potential, if given adequate workingincentives. SIMPA has prepared its own 'Blue-Print for Progress' which aims atimproving SIMPA's training programme to create a regional impact. This studyas well as others made by international organizations merit the seriousconsideration of the Government and potential donors.

Studies and Evaluation

4.29 The mission was informed that the following studies had been completed:'i) a 'Plan for Financing Prira.ary School Textbooks' (by a consultant, May 1985);(ii) a 'Tracer Study' on secondary school leavers, February 1983; (iii) 'SwazilandSchool Mapping/Micro-Planning in Education', MOE 1986; (iv) 'ManpowerEducation and Training' by ILO, 1986; and (v) 'Educational Finance in Swaziland'.The mission was able to receive copies only of the third and fourth of thesestudies and received no information on the fifth.

4.30 The Textbook Study Textbooks and teacher guides were producedsatisfactorily by a ocal publisher in number and quality as envisaged atappraisal. About 70 per cent of sc!;ool textbooks and teacher guides had beendistributed at the end of 1983; however, the process of distribution, expected tobe completed by June 1985, was one year behind schedule. The Bank supervisionmission of June 1985 found that the system of supply, distribution and financingof primary school textbooks was unsatisfactory, and urged the MOE to makefurther analysis of the recommendations made by the consultant. No furtheraction appears to have been taken by the Government or by the Bank and thisserious problem was as yet unresolved at the tirme of the completion mission. Theauthorities at NCC expressed the view that the distribution plan provided by theconsultant was not suitable and had contributed to the delay in distribution by ahalf year. However, the Government and the publishers had made a strenuouseffort to improve the situation in 1987 (para. 4.11).

4.31 The Tracer Study. The tracer study on secondary school leavers hadbeen found useful by the MOE.

- 23 -

4.32 The School Mapping Study. The comprehensive school map wascompleted satisfactorily in October 1986 with the assistance of an internationalspecialist and has become a basis for the Govemment to plan objectively andrealistically the future scope of its educational system. The mapping exercisealso provided a valuable opportunity for on-the-job training for local staff, andenabled the members of the Regional Education Advisory Boards, which areconcemed with the development of education in each of the four regions, tomake appropriate recommendations concerning the future trend and scope ofdevelopment of education throughout Swaziland.

4.33 The Manpower Study. The Manpower, Education and Training Study hasnot yet been acted upon by the Government. During the visit of the completionmission, a final printed version was made available to the mission. However, theGovemment has prepared a synopsis of the report. Printed copies of the reportwere to be distributed among ministers in preparation for an inter-ministerialmeeting which will examine it and discuss its policy implementations, afterwhich the Govemment will issue a 'White Paper'.

4.34 Although the report is useful irn terms of presenting and analysing aconsiderable amount of essential data, it did not fully cover three key items ofthe agreed terms of reference (TOR) particularly:

(a) Documenting the shortfall between job requirements and attainments inthe education and training of currently-employed persons (section (ii) ofTOR);

(b) quantifying the need for and probable cost of specialized manpowertraining with special regard to the establishment and ownership structureof the Swazi economy (Section (iv) of TOR); and

(c) outlining a national training strategy indicating the relativecontributions of the private and public sectors in meeting the trainingneeds indicated.

4.35 The Govemment is very concemed that the study did not include thefinancial implications (TOR number (v)) for the proposals made, especially sincethe report would be used as the basis for planning future development projectsand technical assistance requests. However, according to the Govemment, ILOnow has no further contractual obligation to carry out any further work.

4.36 The Govemment's synopsis of the report contains its main findings andmajor recommendations as well as the Borrower's preliminary reactions,indicating where the Government had already taken recommended steps on someissues and the need for further in-depth studies in other areas. It is suggestedthat the final stage of review of the report to draw-up a national manpower,education and training policy and strategy and determine its financialimplications be done in the form of a strategically planned workshop attended byall potential donors, including the Bank and Unesco. This would provide theforum for identifying specific areas of investment for donor assistance on acoordinated basis. The importance of convening such a workshop as early aspossible cannot be over-stressed.

- 24 -

CHAPTER V

BANK PERFORMANCE

Project Generation

5.01 Project generation covered two and a half years, and was in response tothe Government's educational goals. Bank's support was based upon its policy ofgiving priority support to primary education and upon the conviction that thegoals of the country's Third National Development Plan were appropriate andfeasible for its level of derelopment. In addition, the major benefits expectedfrom the Project were properly identified, although all were not realized. Theconcern expressed about the quality of personnel and programmes at SIMPAbeing a possible obstacle to the achievement of certain project goals was wellfounded and proved to be real. In order to overcome this danger, it was expectedthat technical assistance and training would be provided by other internationaland bilateral agencies. It appears that this support was not provided at the levelexpected. The Bank should have endeavoured to obtain better guarantees forassistance, followed by close monitoring. The Project should have provided fundsfor the purchase of an adequate number of library books and for training alibrarian for SIMPA. The cost of some project items was under-estimated by theappraisal mission, furniture in particular (para. 3.02).

Project Implementation

5.02 The expected training and development plan for SIMPA, prepared inApril 1980, did not yield positive results. SIMPA did not operato effectively and,despite efforts by supervision missions to have the authorities take correctivemeasures, the Bank proved ineffective on this. Textbook distribution wasunsatisfactory, even at the time of the Completion Mission which was informedby the authorities at the NCC that the incomplete textbook distribution planprepared by the consultant in May 1985 and received by the Bank in June 1985,proved unsatisfactory. The Borrower feels that as a result of following the plan,distribution was about one half year late.

5.03 Although curriculum and textbook development accounted for a majorportion of the Project, no specialist in curriculum development and no generaleducator visited the Project. Table 5.1 below shows the extent of participationin field supervision by various specialists.

- 25 -

Table 5.1

Specialists Participation in Supervision Missions

Longest Period of AbsenceStaf f % Span of __________

Weeks Absence(Months) From To

Architects 13.0 42.4 12 ) June 84 June 85Education Planner 13.0 42.6 12)Operation Assistant 2.3 7.5Technical Educator 2.3 7.5

Total 30.6 100.0

5.04 Bank performance on this project was generally good. The areas inwhich more Bank attention was needed include: (a) the issue of textbook storage,distribution and pricing; (b) the development requirements at SIMPA which wentwell beyond providing physical facilities and needed specific provisions relatingto organization (including its mandate and autonomy), software development, andstaff development; (c) the inclusion in the Project of arrangements and fundingas needed for maintenance of buildings, equipment and vehicles; (d) the design ofarrangements to ensure institutional capacity in project managementparticularly as regards training of architects and procurement specialists; and(e) the closer supervision of building design work.

- 26 -

CHAPTER VI

LESSONS DRAWN FROM THIS PRO3ECT EXPERIENCE

6.01 The Project concept and design were responsive to the developmentalneeds of the country and in accordance wit' -he Bank's policy and priorities. Ingeneral, the objectives of the Project were achieved, although there were someshortfalls. A lack of proper monitoring by the Government and insufficientattention and follow-up by supervision missions contributed to these.

6.02 The initial 18 months' delay in appointing architects generated in turnother delays and cost overruns. After three Bank Group-assisted projects, aswell as the Unesco/SIDA Primary School Building Project, there was no Swaziarchitect in the country at the time of the mission. Neither the previous ProjectPerformance Audit Reports for Projects I and 11, nor the Manpower Educationand Training Report by ILO, draw particular attention to the need for nationalsto be qualified as architects. The experience of this and the first two projectsclearly shows that deliberate and precise measures need to be taken to trainarchitects and procurement specialists from the outset, especially in the case ofcountries where they simply do not exist at all.

6.03 Because in the majority of cases primary school provision was reducedfrom seven to three classrooms, there was severe overcrowding. In contrast,there were instances where junior secondary schools remain underutilized. Autilization study and a careful analysis of cost effective reductions in relation toneeds in specific catchment areas would have contributed to rdtional savings interms of space allocation and costs. A detailed school mapping study was clearlyan essentiai tool in this kind of situation.

6.04 The pace of curriculum development in the practical arts and at thesecondary level suggests that for all curriculum development to be completed bythe Government target date of 1990 some major acceleration is needed.

6.05 The acute shortage of science and practical arts teachers, identified atappraisal, has not been resolved. This points to the need for more preciseplanning and programming of the steps by which the required targets are to beachieved.

6.06 The provision of textbooks has been fraught with problems of storage,delivery and financing. It is clear from this case that much more detailedattention was needed to these aspects and to assessing the teasibility ofproposals from the standpoints of logistics and parental ability to pay.

- 27 - Appendix

APPENDIX

MANAGEMENT TRAhNING (CIVIL SERVANTS)

1. SIMPA is the primary government management training institution with

responsibility to provide training to civil servants. However, the level of

training which SIMPA should provide has not been clearly defined and this is a

source of conflict between the Ministry of Labour and Public Services (MLPS)

and SIMPA administration. Two recent studies have identified the major

problems of this institute and m.ade recommendations for its improvement.

2. In 1985 a consultant!' identified the acute shortage of teaching staff as

the basic problem and recommended that:

(a) a Governing Board, of between seven to 14 persons, including members

from the Government, the private sector and other educational and

professional bodies, chaired by the Principal Secretary of the MLPS be

established;

(b) a four-to-five year rehabilitation programme be established not later

than July 1985, manned by a team of four international experts;

(c) the salary structure for faculty and other professional posts be upgraded

substantially in order to attract suitably qualified nationals of the

country to work at SIMPA and have them trained by the international

experts;

(d) no more trainers should be recruited directly from the university without

prior experience.

3. The 1986 Bank Report2/ confirms this problem and points out that

SIMPA has reached a position now where its further development is hampered by:

(i) quality of the training programme; (ii) capacity of teaching staff; (iii) salary

and grading structure; (iv) its limited outreach; (v) lack of autonomy; and

(vi) accommodation and facilities. The Report makes an appropriate

recommendation for each of the above items, some of which are In agreement

with those of the 1985 consultant report. Other major recommendations of the

Bank Report are that:

(a) SIMPA should be given the next five years to reinforce its base in terms

of its mandate under the proposed Governing Board;

(b) SIMPA and the IDM, located on the same campus, should collaborate:

IDM should focus on training for the most senior management and SIMPA

should concentrate on programme for junior and middle-level

management;

1/ Michael A. Bentil, Consultant: Personnel and Manpower Development in

Public Services, pages 15-16, May-3une 1985.

2/ Botswana, Lesotho and Swaziland (BLS). Study of Public Administration

Management: Issues and Training Needs (Volume IV: Swaziland), April

21, 1986, Education and Manpower Division, Eastern and Southern Africa

Region, The World Bank, Washington DC..

- 28 -Appendix

(c) SIMPA should establish a programme of course evaluation, going beyondparticipant appraisal of courses at the end of the programme.

4. In its "Blue Print for Progress", SIMPA identified many of the samew;oblems as the two previous studies and made similar recommendations. Theneed to produce more materials relevant to Swazi managerial requirements, andthe " ... woefully inadequate" teaching staff were strongly emphazied in its "BluePrint". The report recommended an addition of seven specialist trainers in sixareas! /.

5. The Completion Mission supports these findings, on the basis of itsassessment of the leadership and the institute itself. All the studies and themission's findings tend to convey the same message: SIMPA has not performedsatisfactorily and therefore requires substantial multilateral assistance.

6. The mission also identified two additional, but more subtle problems. TheManpower Division of the MLPS, under which SIMPA falls, is equipped neitheradministratively nor professionally to exercise its organizational responsibilityfor coordination of training. Furthermore, there is no clearly stated policyregarding SIMPA activities. SIMPA staff belileve that their mandate is to trainstaff at every level of government and parastatal agency and they attempt toprovide such programmes, but the Manpower Division thinks that SIMPA shouldtrain staff only up to the middle-level grade. The issue has not yet beenresolved. The second problem is the lack of effective leadership of SIMPA itself.Leadership crisis involved the retirement of the former Principal, followed by avacant period, then the appointment of a new Principal, who has not yet set inmotion the steps needed to resolve the problems.

7. Regarding the acute shortage of staff at SIMPA, of an approved total of11 posts, only seven including the principal had been filled at the time of theCompletion Mission. Of this number, one person each in financial managementand computer sciences had gone on study leave in 1987. Therefore only fivestaff members were at the Institute at the time of the Completion Mission, twoexpatriate Senior Staff Training Officers, one Swazi national Staff TrainingOfficer and two Swazi national Assistant Staff Training Officers. The shortageof staff is due mainly to the uncompetitive salary levels.

8. The Completion Mission was informed that the Bill to make SIMPAautonomous had been passed in May 1986 by the National Assembly and wasawaiting Royal Assent. It should be emphasized that autonomy alone, withot'teffective leadership and the improvements proposed by the various studies,would be of no consequence. An effective Governing Board which would effectthe rehabilitation programme would be a major positive endeavour to makingSIMPA what it was originally perceived to become when it was established adecade ago.

1/ Accountancy and finance; personnel administration; publicadministration; quantitative techniques and management informationsystems; computer science; and development administration.

- 29 -Appendix

9. The training outputs of SIMPA were far below the appraisal forecast of1,500 civil servants per year. There were 361 participants trained in 1983involving 4,325 participant days; 297 in 1984 involving 2,309 participant days;and 414 in 1986 involving 5,318 participant days. The achievement has been lessthan 25 per cent of appraisal target. Clear enrolment figures for 1985 were notprovided for the mission but 16 courses were offered as was the case in 1986.Summaries of the programmes given by SIMPA for three years are given inAnnex 9.

10. The facilities provided by the project have been under-utilized asevidenced by low enrolment and the disorganized library. The staff upgradingand training programmes that the appraisal team expected to have beensponsored by USAID and developed by IDM in early 1980, did not materialize;however, IDM expanded its training programme to cover areas supposed to becovered by SIMNPA. This over-lapping of functions has been a source of conflictbetween the two training institutions.

11. The functions of SIMPA should be clarified by the Government. Forexample, during the visit of the Completion Mission, the Localization andTraining DOtpartment in the MLPS, under which SIMPA falls, conducted aseminar_ on "Human Resource Development" at a hotel attended by officersfrom the Ministry of Health and the MLPS. For reasons unclear to the mission,it was not possible for SIMPA to host and conduct the seminar, although it hadbeen requested by the MLPS to do do.

12. The World Bank study indicated that SIMPA programmes are "too long toappeal strongly to the private sector", where time is costly in terms ofmanagement and productivity. Short, intensive quality courses would be moreattractive to the private sector (an important participant). Programmes of thiskind could increase enrolment and output.

13. It is clear that SIMPA needs a complete rehabilitation programme thatwould include improvement in management development programme responsiveto national and regional demands, increased staff training (including a trainedlibrarian) and library devel ;ment, all aimed at full utilization of facilitiesprovided by the project I . the programme expands in response to identifiedneeds, the existing facilities could be upgraded accordingly.

1/ The Times of Swaziland, Tuesday, 10 February 1987, page 3.

urn- U * -31-- B Annex I

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CAn narison between Aseaisal and Actal Constc !on. I U=. Areas. COst

Capacity No. Gross Area Area for Student Construction Costs Cost per m2Cost per StudentStudent Ptme (i 2) Place (i 2 ) (in E Million) (in E) Place (in E)

(new)

Project Item App. Act. Ap-. Act. DIf.% App. Act. Dif.% App. Act. DOf.% App. Act. Dif.% App. Act. Dlf.96 Comments

1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17

Primary Education

New & Exsting 10,880 5,1261/ 40,500 29,644 -27 3.72 5.79 +56 4.39 8.08 +84 108.39 272.57 +1S1 403.5 1,578 +291 includes 200 housesPrimary Schools

for teachers 'Ap.)Indiudes 121 houses LOfor teachers (Act.)Secondary Eduction

Expansion of 1,200 1,080 11,690 10,075 -14 9.74 9.33 - 4 2.35 2.62 +11 173.99 260.05 + 49 1,695.0 2,426 + 43 Includes 36 housesJunior Secondary

for teachers (App.)Schools

Includes 34 housesfor teachers (Act.)New Junior 1,440 1,440 10,320 9,424 - 9 7.17 6.54 - 9 1.75 2.47 +41 146.39 262.09 + 79 1,049.0 1,715 + 63 Includes 30 houses

Secondary Schools

for teachers (App.)Includes 30 housesfor teachers (Act.)

Total Junior 2,640 2,520 22,010 19,499 - 13 8.34 7.74 - 7 4.10 5.09 +24 161.05 261.04 + 62 1,343.0 2,020 + 50 Includes66 housesSecondary Schools

for teachers (App.)Includes 64 housesfor teachers (Act.)

I/ Based on the provision of a total 122 classrooms, each with a capacity of 40 student places,amounting to 5,126 student places. The reason for shortfall is given in Chapter 11, paragraph 2.14.

Compliance with Loan Conditions

ParagraphsDate Due Conditions In Loan Status

Agreement

No date A condition of disbursement for Schedule I Conditions partly met. A planconstruction of additional facilities para. 4(b) satisfactory to Bank was preparedat SIMPA is the completion of a plan in April 1980 but only one-thirdfor strengthening SIMPA, coordinating enrolment target achieved becauseactions of participating agencies, and of shortage of staff due to lack ofimplementating proposed training salary competitiveness. Seeprogrammes. para. 5.021/.

1 Jan. 1981 Borrower shall establish an integrated Section 4.04 Condition Met. The primary andCurriculum Development Department secondary curriculum units werewithin MOE, which shall include the merged in May 1983 to form thePrimary Curriculum Unit and the National Curriculum Centre.Secondary Curriculum Unit.

I Jan. 1982 Borrower shall prepare a plan for Section 3.05 Condition Met. Report preparedthe financing of primary school by consultant following histextbooks by the completion of the mission of March 1985 containsproject. financial plan.

Continuous Borrower shall implement an in-service Section 3.06 Condition met. Government istraining programme for primary school implementing in-serviceteachers. programme.

Continuous Borrower shall operate the programme Section 3.05 Conditions not fully met. Chiefunit (PIU) with following staff; Architect services terminated 3une(i) Director; (ii) Architect; (iii) pro- 1985 with work undertaken bycurement officer; and (iv) supporting architect financed by Unesco/SIDAstaff. until Jan. 1986. No architectural

supervision was provided for theremaining work during last 12months.

Sept. of each year Borrower shall prepare an annual Section 4.03 Condition Met. Last reportaudit report. sent to Bank, September 1986. >

May and Nov. of Borrower shall prepare a semi-annual Section 4.03 Condition Met. See para. 2.05. xeach year progress report.

1/ A copy of the plan was not available to the mission; the Principal was unaware of such a plan.

C5Msl Of it*dk1l Estated Cost and Actei Cats(in usS million)

Construclion & Site Furniture Equipment TechMical ASdstance Studies and Administration Un- Total CostDevelopment (Training & Consutant) Evaluation

allo-Appraisal Act. % Appraisal Act. % Appraisal Act. % Apprais Act. 96 Appraizal Act. 9 Apprais Act. 96 cated Appraisal Act. 96-Cont -Cont Cost Dil. -Cent 4Cont Cost DWi. -Cant SCont Cost Dif.-CanM4Cont Cost Dif.-ContSCont Cost Dif.-ContMCont Cost Oit. -Cont +Cant Cost Di.1 2 3 3/2 1 2 3 3/2 1 2 3 3/2 1 2 3 3/2 1 2 3 3/2 1 2 3 3/2 i 2 3 312New Primary Schools 4.37 5.05 5.65 *12 0.17 0.20 0.29 *es 0.90 1.03 0.90 -e

5.44 6.30 6.8U + IExpansion of Ten 3unior

4Secondary Schools 2.34 2.70 1.77 -" 0.16 0.19 0.07 -63 0.47 0.3* 0.15 -72

2.97 3.43 .99 -*2 $Six New3unier SecondarySchools 1.7* 2.01 1.60 -1i 0.10 0.13 0.13 *15 0.29 0.3* 0.26 -2* 2.13 2.48 2.03 -17New In-Service Centre & District

Education Office 0.24 0.28 0.12 ^57 0.03 0.0o 0.05 .25 0.10 0.12 0.05 -38 0.37 0.44 0.22 -30Expansion of SIMPA 0.31 0.36 0.12 -67 0.03 0.0* 0.0* 0 0.0* 0.03 0.0* -20 0.38 0.43 0.20 .36Sub-Totaw 9.00 10.40 9.30 -11 0.50 0.60 0.60 0 1.20 2.10 1.40 -33

11.30 13.o0 31.30 -1*Technical Assistance 0.70 2.00 1.2* -38 0.70 2.00 1.24 .38Studies & Evaluation

0.10 0.28 0.003 -99 0.10 0.28 0.003 -S9Administration 0.19 0.52 0.20 -62 0.19 0.52 0.20 -62Unallocated

3.60

Total 9.00 10.40 9.30 -11 0.50 0.60 0.60 0 3.80 2.10 1.40 -33 0.70 2.00 1.2* *3S 0.30 0.28 0.003 -99 0.39 0.32 0.20 -62 3.60 12.29 15.90 12.7* .20_ ._ _ _~~~~~~~~~~~~~~~~~~~~~I

- 35 -Annex 5Page 112

Allocation of Loan Proceeds(US$ equivalent)

Category ^°llOriginal ActualAllocation Actburseen

as per l,oan AMmenet DisbursementU5$ million US$

Civil Works 5.00 5,011,690.79

Fumiture 0.401,665,215.65

Equipment and Vehicles 1.40

Studies 0.10 2,593M05

Technical Assistance and Consultants 0.60 )) 1,230,969.57

Administration 0.10 )

Unallocated 2.50

Total Disbursed 7,910,469.06 (78%)

Cancelled 191,000.00

Undisbursed 1,998,530.94 (22%)

Total of Loan 10.10 10,100,000.00

S C hl DE /U L 0 F / SAR E / A/ 7 S

SYv~p~ 5 49 I 3 3 I / 9 3 4 J 9 3 4 .R 9 4 5 / 9 / A 5 4

_i 2 -. - -__- -< - - -- --- -= - - == - -- _ -

so 3. 1 8.8Y 6 V7.2. Z

6 - - - - - - - _ _ _ _ M. /5 e

4 __- -,_ _-- - -

3 _ 5 ifSSw2b3t3 5f t5t01w6 8B fL wNe3

-37 - Annex 6

page 1/2

Enrolments in Project Institutions

Target ActualInstitutions Enrolment Enrolment Enrolment

1980 1984 1986

Primar Schools 12 223

Hhohho 4 238

Njaliba 86 280 354Esidwasheni 411 2803/ 712Herefordsl/ 604 840 611Nhlanguyavukal1/ 166 280 269Zinyane 42 280 155Hawane 0 200 177Ngowane 120 280 228Rocklands2/ 0 280 69Entubini 133 200 284Kobolondo2 / 0 280 161Endzingweni 375 2803/ 514Mbabanel/ 0 280 416Sifundzani - - 288

Lubombo 2 238

Holy Ghost1 / 111 280 99Ndlalane 123 280 336Madubeni 19 280 249Shewula 252 280 272Mambane 133 280 317Loretta/Nkonjwa 53 280 209Nkalashane 108 280 374Embosi2/ 0 280 295Enkanini 0 280 87

Shiselweni 3 702

Edzindwendeni 89 280 262Hosea 152 280 421Hebron 33 200 214Mahlabathini 0 280 143New Warm/Nkwalini 58 280 221Phumelela 108 280 376Mahlabathini 57 280 274Sibetsawoya 353 560 333Themba 133 280 251Mlindazwe 280 2804/ 389Kamazombizwe 0 560 510Qomintaba 100 280 308

1/ Provisionally included if funds are available at project completion.New schools; not yet opened.No reason was given as to why enrolment was expected to go down.

4/ Unclear why enrolment was expected to remain constant.

- 38 -

Annex 6page 272

Institutions Enrolment Target Enrolment Actual Enrolment1980 1984 1986

Manzini 2 045

Antioch 69 280 331Ehlani 0 280 62Ekukhukumeni/Tshebevu 67 280 117Joy Mission/Hlokohla 80 280 71Maklanya 232 280 335Magojela 108 280 241Mgothane 196 280 190Nkiliji 0 280 264Ngwane Park 0 280 434

Secor Schools 3 433

St. Paul's 227 360 283Siphocosini 148 240 161Kamazombizwe 26 240 211Emcozini 181 360 271Siteki 300 360 375Masiphula 205 360 240Esigangeni 81 240 241Kalamdlada 107 240 183Magubhuleni 216 360 202Ebenezer 224 360 253Nsongweni 221 360 246Dlangeni 228 240 142Nsingweni - 240 96Enkhaba 360 271Mahamba 360 258

- 39 -Annex 7

Primary Books Published and Costs

Year Titles No. of Books Value

1979 5 174,000 E 59,200

1980 - -

1981 4 133,650 E 55,267

1982 11 349,600 E 221,402

1983 11 365,711 E 281,092

1984 17 37,100 E 428,400

1985 6 25,900 E 280,073

1986 13 252,188 E 688,984

1987 29 410,000 E 700,805

Total 96 1,748,149 E2#715,223

- 40 -

Annex 8

Types of Workshops t eNCted by NC in 1985

Type Target Group Purpose Venue Dates

Orientation Headmaster and To introduce the NCC and TIDC Jan. 1985Pilot Teachers of: pilot schoolMaths Grades 6-7 teachers to theEnglish - Grade 2 use of the newP.A.: Phys. Ed. materials.Phys. Ed.-Grades 1-2Consumer Ed.-Grades 6-7

Feedback Maths Grade 6-7 To solicit the pilot NCC and TID May 1985school

English, Grade 2 Teachers' input intomaterials introeucedin January

Revision Ordinary classroom To synthesize Emialatini July 1985teachers of Grades 1-2 feedback from the DevelopmentSiswati and Science, survey of 80 schools CentreGrade 3; Social Science, in order to initiateTTC lecturers, INSET, the revision of theInspectors, NCC materials.professional staffand Publishers.

Diffusion NCC staff, INSET, To be familiarized Swazi National 16-20 Dec.Inspectorate: for with Grade 7 - High School 1985Grade 7 Siswati, Science Siswati, Science andand Social Studies; Social Studies,Grade 5 - Maths and Grade S - Maths andGrade 2 English Grade 2 English.

Preparation fornationwide diffusion.

- 41 -

Annex 9page 172

l~~~

Summary of SIMPA Courses

1983 - 1984

Programme Target Group Length

Department Specific Courses

Managing Educational Inspectors District Education 2 weeksInstitutions Officers, Deputy Headmasters,

Headmasters (Grade 18 and above)

Sorting Office Course Temporal Sorters, Grade 6 5 weeks

Advanced Postal Course Postal Officers, Grade 10 12 weeks

Postal Supervisory Training Postmaster 11, Grade 13 5 weeksCourse

Miscellaneous Courses

Word Processing Theory and Personal and Senior Personal 3 weeksPractice Secretaries to prepare for

Pitman's Examination

Understanding Computers Experienced information 3 monthsprocessors, grades 14 and above

- 42 -

Annex 9page 2/2

Summary of SIMPA Courses

1985

Programme Target Group Length

Orientation and Refresher

Induction Course for Diploma Diploma and Graduate New 4 weeksGraduate New Entrants Entrants Grade 14 and above

Introduction to Industrial Private Sector Managers, 2 weeksRelations in Swaziland Civil Service Managers,

Personnel Specialists

Accountancy Induction Course Government employees to 6 monthsprepare for basic PF!nma.t sInstitute Intermediate level

Seminars and Workshops

General Management Civil Service employees 4 weeksGrade 20 and above

Planning and Management of Project Analysts, Planning 4 weeksProjects Officers. Project Managers,

Grade 16 and above

Financial Management and Senior Public Service 4 weeksBudgeting Managers, Senior Accounting

Officers, Officers respon-sible for preparing Budgets,Grade 18 and above

Training of Trainers for Extension Officers, Trainers 4 weeksExtension Officers in Government and Parastatals,

Grades 16 to 20

Accountancy Course Full time members of Government 4 weeksaccountancy cadre, Grades 10-14.(Follows Induction Course)

Supervisory Skills for Extension Officers, Grades 16-19 4 weeksExtension Officers

Intermediate Industrial Personnel specialists from 2 weeksRelations Private and Public Sector,

Union and Management Repre-sentatives, Labor DepartmentOfficers (Follows IntroductionProgramme)