2-ocumnen of The World Bank FOR OMJCIL USE ONLY Rhmt Ne.5598-COK COMOROS EDUCATION SECTOR %,1EMORANDUM June 25, 1985 Education and Manpower Development Division Easte-rn and Southe-rn Africa Regional Office _Tb 1, I w a TsU daow mmabee y epkts _1-y In te pmwf of ther eail m lb fso "m _ftf be dban vItd_ WW Boo mjd_r Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized
Transcript
2-ocumnen of
The World Bank
FOR OMJCIL USE ONLY
Rhmt Ne.5598-COK
COMOROS
EDUCATION SECTOR %,1EMORANDUM
June 25, 1985
Education and Manpower Development DivisionEaste-rn and Southe-rn Africa Regional Office
_Tb 1, I w a TsU daow mmabee y epkts _1-y In te pmwf ofther eail m lb fso "m _ftf be dban vItd_ WW Boo mjd_r
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CURRENCY EQUIVALENTS
US$1 FCCFA 483 (October, 1984)
ABBREVIATIONS
AfDB African Development BankBAC BaccalaureateBEPE = Education Projects Implementation Unit
(Bureau d'Execution des Projets d'Education)CADER - Center for Assistance to Rural Development
(Centre d'Appui au Developpement Rural)CEFADER = Federal Center for Assistance to Rural Development
(Centre Federal d'Appui au Developpement Rural)FAC = French Technical Assistance Program
(Fonds d'Aide et de Cooperation)INE - lational Institute of Education
(Institut National d'Education)HEN Ministry of National Education, Culture, Youth, and Sports
(Ministare de l'Education Nationale, de la Culture, de laJeunesse, et des Sports)
eEDERAI Ii-AMIC REPUBLIC OF THE COMOROS
FISCAL YEAR
January 1 - December 31
COMOROS
EDUCAIION SECTOR MEMORANDUM
TABLE OF CONTENTS
Pae No
BASIC DATA
PREFACE
Summary and Recommendations ............................... i
I. INTRODUCTION ......................................... 1
Geographic and Socio-Economic Setting .... ............ 1- The Country ........................................ I- Political and Institutional Structure .I- The Population ..................... ,,, 2- Schooling and Educational Level. 3- The Labor Force. 5- Recent Development and Prospects. 6
II. GOVERM!ENT POLICIES FOR THE SECTOR AND PROPOSEDPOLICIES COR-RECTIVE MEASURES. 7
Bank's Knowledge of the Sector .7
Education Financin. 7- Budgetary Expenditures in Education. 7- Aeacher Salaries .- 'unit Costs . ........................................ 10- Projection of Education Expenditures .... ........... iO- Investment in Education ....... ..................... 12
Government Policies for the Sector ..... .............. 13- Education Administration and Financing .... ......... 14- Pre-School Education 'oranic Schools ............... 15- Primary Education ......... ......................... 15- Secondary Education ........ ........................ 19- Vocational/Technical Education ..................... 21- Higher Education ......... .......................... 22
III. AREAS FOR WORLD BARK GROUP INVOLVEMENT ............... 24
External Assistance to the Sector ...... .............. 24World Bank Group Assistance to the Sector .b 24Sector Support Strategy .............................. 24Sector Work Priorities ............................... 25
ANNEX I The Education and Training System
ANNEX II
Table 1 Summary of 1983/84 Enrollments. Primary/Secondary/Vocational/Teacher/Higher
Table 2 Recurrent Budget of Ministry of Education, 1984/85Table 3 Alternative Projections of Expenditures of the Ministry
of Education, 1990Table 4 Efficiency Anlysis of Primary LevelTable 5 Enrollment Projections, Primary SchoolsTable 6 Primary Teachers Distribution by QualificationTable 7 Primary Teachers Distribution and ForecastTable 8 Enrollment Projections Junior and Senior SecondaryTable 9 Secondary Teachers Distribution and ProjectionTable 10 Higher Education of Fellowships AbroadTable 11 Distribution of Islands' Active Population by Economic
Sector and Urban or Rural EmploymentTable 12-A List of Viable Primary SchoolsTable 12-B Proposed Structure of Primary SchoolsTable 13 Proposed Consolidation of Secondary SchoolsTable 14 Education Investment Projects Submitted to the 1984
Donors' Coaference
ALNNEX III Selected Documents
Chart 1 Education PyramidChart 2 Structure of the Education and Training SystemChart 3 Structure of the Ministry of National Educacion
This Sector Miemorandum was prepared by Mr. A. Aime (Sr. EducationPlanner) and Hs. J. Vial (Sr. Economist).
COMOROS
EDUCATION SECTOR MEMORANDUM
BASIC DATA 1/
POPULATION
Area 1,861 km2Population: total (1984) 377.000
growth rate p.a. 3.0Zdensity 203GNP per capita (1983) US$345
Literacy rate (1980 Census) 49%Rural population 77%
The Government of the Comoros has yet to prepare a comprehensivedocument consolidating its policies with regards to education (para. 2.14).
Chapcer II of this report lists and reviews main Governmentpolicies in education, makes recommendations for changes required for asounder administration and operation of the education system and analysesthe financial implications of such recommendations.
It is important to note that the Government of the Comoros,during the last four years, has undertaken a number of actions geared tothe rationalization and containment of education expenditures. Among themthe following can be listed: (a) increased the student-teacher ratio inupper secondary education; (b) eliminated all primary and secondaryboarding and; (c) eliminated the provision of new Government fully fundedscholarships abroad.
The Bank staff initiated sector discussions with the Directors ofthe Ministry of Education, Central Planning and Ministry of Finance duringthe November 1983 and September L984 visits to the Comoros. The issuespresented in this report and the potential solutions were largely derivedfrom these discussions and the dialogue established with other donoragencies, in particular with the French Assistance which has a leading rolein the sector.
During the last nuarter of FY1985 a Bank education mission plansto visit the Comoros to discuss with the appropriate Government officialstht content of this draft Sector '.emorandum. During this =ission, effortswfill be made to establish with Government a sector strategy emphasizingways to improve the quality and ecuity of the country's education system.
THE COMOROS
EDUCATION SECTOR NEMORANDUM
SUMMARY AND RECOMMENDATIONS
1. This Education Sector Memorandum (ESM) should serve as a basisfor dialogue among the Government, World Bank and other donors. The reviewof the issues included in this document should assist the Government todevelop rational sector policies for the Comoros education and trainingsystem.
2. World Bank dialogue in the sector has been ongoing since theappraisal of the First Education Project in 1981. During the last fouryears the Government has made effort to improve its control and reduce thecosts of the education system by eliminating some student allowances,centralizing the budget, and increasing teacher-pupil ratios at thesecondary level. In spite of the latter efforts, prospects of continuedeconomic difficulties and the foreseeable doubling of the population withinthe next 25 years (leading to vastly increased numbers demanding education,training and jobs) would continue to create severe financial difficultiesunless the most cost-effective use of resources is established and theoverall operating efficiency of the system is substantially increased. Theimprovement of education and training according to well defined prioritiesshould coatribute to increased agricultural productivity which would securefood supply, foster output in other productive sectors, raise the qualityof social services, and last but not least strengthen the managementcapacity of the Government and small industries.
3. Government needs to develop at the earliest possible, educationpolicy priorities conducive to the optimization in the use of availableresources and improvement of the low quality and low efficiency of theeducation system. In this endeavour the Government would have to:
(a) strengthen the management and planning capacity of the Ministry ofEducation (MEN);
(b) upgrade the teaching staff and provide the necessary educationalmaterials;
(c) establish stricter entrance, promotion and selection criteria forthe students;
(d) adjust vocational/technical training programs to better suit labormarket demands; and
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(e) reallocate financial resources within the sector to achieve theirmore efficient and equitable distribution, while looking forpossible contributions from education recipients and thecommunities.
4. In order to accomplish the above, it is recommended that theGovernment take, inter alia, the following actions:
(a) supplement the administrative staff of the HEN with adequatelyqualified personnel and provide training to existing staff, inparticular to the planning unit, to enable them to gather reliablestudent, teacher and fellowship data needed for the propermanagement and budgeting of the system;
(b) continue and expand pre-service and in-service teacher trainingprograms to improve the quality of the teaching;
(c) set enrollments at the secondary and higher levels in accordance withlabor demand, and the availability of qualified teaching staff andfinancial resources;
Cd) provide a more realistic share of the resources tovocational/technical training and thus assist overcome theprevailing shortages of intermediate level skills; and
(e) review budgetary allocations to provide increased resources foreducational materials, while reducing the present high outlays forfellowships for higher education. The Government should alsoestablish a system of parents contribution to the financing ofeducation (such as book users fees) and gradually transfer thefinancing of pre-primary education to parents and communities.
v. Chapter I of this report briefly describes the socia-economiccharacteristics of the country with particular emphasis on its populationand labor force. Chapter II reviews the MEN policies in the educationsector and makes specific recommendations for its improvement. Among therecommendations the most important are highlighted below:
A. Administration (para. 2.15 A, sections a, b, c). To reinforce itsplanning unit which at present includes only one qualifiedprofessional, the MEN, in addition to allocating the needed localstaff, should obtain technical assistance for the improvement ofthe data base and development of a long-term education plan.
B. Pre-Primary Education (para. 2.15 B). As is :he practice inother African countries, the Comoros should have the parents andcommunities absorb the cost of pre-primary education. Savingscould be allocated to primary education for qualitativeimprovements.
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C. Primary Education (para 2.15 C, sections a-m). The followingmeasures are recommended:
(a) Annual enrollment growth should match the population growthof 3%. Such enrollment growth could be accommodated in existingfacilities and facilities under construction (see C (c), (d),(e); D (c); and para. 2.13);
(b) As a first step to cost recovery, book user fees should becharged;
(c) The MEN should prepare a plan for the phased implementation ofthe 1981 School Mapping Exercise recommendations;
(d) To lower costs and the number of unqualified teachers, thepupil-teacher ratios (TPR) should be increased to 1:45 from thepresent 1:39;
(e) The MEN should experiment with qualified teachers teaching twostudent groups (instead of a single one) in return for a salarysupplement;
(f) The Government should distribute the new teacher graduatesaccording to needs, about 56% Grande Comore; 39% Anjouan and 5%lMoheli;
Cg) A teacher training plan, conducive to a college pre-serviceoutput of 90 and the upgrading of 100 training by inr-servicep.a., should be implemented;
(h) To reduce high drop-out rates and improve qualitv, the firstand sixth grades should be fully staffed with qualifiedteachers.
D. Secondary Education (para. 2.15 D, sections a-g). The followingmeasures are recommended:
(a) To improve the quality and control costs, automatic and freeaccess to secondary schools should be discontinued, whilelimiting enrollment growth to about 1% p.a. for the next fewyears;
(b) Stricter entrance rcquirements should be set and the qualitycontrol of secondary examinations should be improved with theassistance of an external examination board;
(c) The over 50 existing secondary schools should be consolidatedinto about 30 schools with an Arabic option included in thecurriculum selected schools;
(d) Training of secondary teachers at Xvouni should be increased atthe earliest to an output of 70 graduates p.a.;
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(e) The Introduction of practical subjects in the secondary schoolsshould only be effected in a limited number of schools andthis only when the facilities, equipment and staff areavailable.
E. Vocational/Technical Education (para 2.15, section E). TheGovernment's recent efforts to improve agriculture and health trai-ing should be extended to the vocational and technical trainingprograms,also using the modular system. A study recently preparedby the World Bank/Unesco Cooperative Program recommends upgradingof an existing vocational/technical institution and the establishrment of a business school to train intermediate staff. Theimplementation of these proposals would assist the country in meet-ing its manpower needs.
F. Higher Education (para 2.15 F). The main act:ity of the onlyhigher institution in the country, Mvouni, should be to trainsecondary teachers. A higher education long-term plan (minimum 5years) should be prepared listing the programs, staffing andbudgetary implications. Fellowships within the country should bereplaced by student loans and granted only to qualified studentswho lack the necessary financial means. Fellowships abroad shouldbe limited to those fully financed by external assistance, andtheir selection should be made strictly on the basis of high levelmanpower needs.
6. Chapter III is concerned with external assistance to education inthe country and the dorld Bank Group participation in the sector. Giventhe relativelv large number of donors supporting the develoDment of theeducation sector, it is important that ways be devised by the Government toimprove the coordination of external aid £or education. One practical waywould be for the Government to use this Sector Memorandum (once it has beenfinalized tzking into account the Covernment's conments) as backgroundmaterial for the next Donors' Roundtable (expected to take place later thisyear). Annex I provides a detailed description of the country's eeucationsystem.
THE COMOROS
EDUCATION SECTOR MEMORANDUM
I. INTRODUCTION
Geographic and Soclo-Economic Setting
1.01 The Country. The Comoros archipelago, with a total area of 2,235km2 is located in the northern tip of the Mozambique Channel, at a distanceof 280 km from the African continent at its closest point. It comprisesfour main islands: Grande Comore, Anjouan, Moheli and Mhayotte. The islandsare mountainous of recent volcanic origin, with a tropical maritime climateand subject to occasional cyclones and volcanic eruptions. The soils aregenerally rich and support a lush vegetation. In its lower lands growylang-ylang, cloves and vanilla, providing the main export crops,intermingled with coconut trees, cassava, and banana trees. Over the 500meters level other food crops (cereals, beans, potatoes) are produced,while in the higher slopes, primary forests are found although very muchdegraded when close to humane habitation.
L.02 The agricultural land, virtually the sole natural resource in theislands, is extremely scarce in relation to the population, and productiontechniques are generally poor. Fisheries activities are of a handicraftnature and there are no known mineral resources. The shortage of land isParticularlv serious in Anjouan where over-intensive cultivation hasresulted in substantial erosion. The smallest of the islands, 'Ioheli,because of its lower population density, appears to have the bestagricultural prospects. However, inter-island communications aredifficult, shipping conditions in Grande Comore and .1oheli areunfavorable. These limitations of natural resources and infrastructurehave resulted in the Comoros being one of the least developed countries inthe world -G'4P per capita is estimated at USS345 (1983).
1.03 Political and Institutional Structure. On Julv 6, 1975, theConorian Parliament unilaterally proclaimed the independence of thearchipelago from France. However, the deputies from lavotte petitionedParis to remain tinder French administration. The French Parliamentlegislated for the independence as a single nation of Crande Comore,Aniouan and Moheli and provided for a referendum 'or M.ayotte in which itscontinued dependence from France was reconfirmed by the voters 1/.
1.04 In October 1978 the Republic of the Comoros was constituted as afederal state composed of three independent governorships for GrandeComore, Anjouan and '.loheli under the President of the Republic. ThePresident is elected through popular vote and the governors since 1982 are
1/ Unless otherwise indicated in what follows in this report, Mayotte isexcluded
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appointed by him, folloving proposals made by the Islands' Councils. Thelatter are elected by direct voting of the population. At the federallevel the executive power is exerclsed by the President assisted by thecabinet appointed by him; the legislative power is entrusted in the FederalAssembly, elected by the population; and the judicial power operates underthe authority of the Supreme Court.
1.05 An attempt to provide a broad autonomy to the governorshtps inthe management of the islands' affairs run into serious difficultiesbecause of the lack of parallel financial independence- the bulk of thefinancial resouzces for the islands has to be provided from the federalbudget. A return to a somewhat more centralized administration since 1982has improved the situation, in particular, reduced substantially the delaysin the payment of salaries of civil servants.
1.06 The Population. Because of the succession of invasions of theislands by different ethnic groups, the inhabirants of the Comoros are ofmixed origin, where the Bantu dominates, but where Arab, Malagasy orIndonesian are also in evidence. However, the population is united by acommon language, Comorlan, closely related to Swahili, and a commnreligion, Islam, taught to pre-primary school children in the Koranicschools. The Comorian language is very seldom used in written form whileFrench is the official language of instruction and literacy.
1.07 In 1980, a population census was taken in the three islands underComorlan administration.2/ A surary of the census results is as follows:
Population - 1980
Total Urban Age Grouo Dens_tyIsland P?opulation (%) under 15 Ct) ner k'm2
Source: Recensement GE.Eral de la Population, 1980
The above figures indicate that the population is young, mainly rural andthat there is a serious population pressure over land resources. (Thepopulation density is one of the highest in Africa).
2/ The Country Economic Y-emorandum for the Comoros issued in 1985,contains extensive detailed information o& the general populacion andthe labor force, extracted fron the 1980 census.
3
1.08 Comparing the 1980 data with the results of the 1966 census(preceding census), the following observations can be made: (a) thepopulation has been growing at a very fast pace of 3.3% per year (3% ifabout 17,000 repatriates from Madagascar are excluded); (b) the share ofurban population in the total has increased substantially (from 18% in 1966to over 23% in 1980); (c) the population has become younger (the share ofthose under 15 years of age has gone up from 44% in 1966 to over 47% in1980 and; (d) the pressure on the land has become more acute (thepopulation density has increased from 114 per km2 in 1966 to 180 per km2 in1980). The serious socio-economic implications of these intercensaldevelopments in a country as poor as the Comoros can be easily understood.
1.09 Schooling and Educational Level. Census data for 1980 indicatethat of the age group 6-14, only about 38% attended school, i.e. tuo out ofthree children of this age group were not in school 3/. Another elementwhich confirms the low past and present school attendnnce is the fact thatof the age group 12-19, oaly 38% could peak French, the language ofinstruction starting up at primary school, while of the population 12 yearsand over only 18.3Z could speak it.
1.10 Literacy as defined in the 1980 census includes those who canwrite Frefrch or Comorian in Arabic characters. The following statvs ofliteracy onng persons 12 years and over -as registered in the census:
Source: Recensement G&airal de la Populacion, 1980
The literacy rate of close to 50% (54.5% for males and 40.0% for females)registered in the census may be overoptimistic in as much as it includesthose who reported to be able to use the Arabic alphabet only. This groupcorresponds basically to those whose sole schooling has been two to threeyears of pre-primary Koranic school and who can hardly have becomefunctionally literate. The higher literacy rate observed in Moheli isconsistent with substantially higher enrollment ratios than in the other
3/ Note that this figure relates strictly to a particular age group andconsecquently it is not directly comparable with gross enrollment-data.
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islands (Annex 1, para. 8). Finally, notwithstanding the possibleunderestimation of the 51Z illiteracy rate reported in the 1980 census,this compares unfavorably with the 45% registered in the 1966 census. Thisincreasing trend in illiteracy is a matter of serious concern and has to behalted.
1.11 The census form included a question on the level of educationattained by the literate population 12 year of age and over.Unfortunately, only less than half of the literate population answered suchquestion. Having in mind this omission, which probably affects morestrongly the lower levels of education attainment, the followingdistribution of school attainment can be derived from the reportingliterate population:
Highest Level of Schooling Attained
Z of Literate Population Reporting
Level of Schooling Males Females Total(O) (Z) (%)
Post Secondary and Technical 1.8 neg. 1.4Upper Secondary 3.0 1.8 2.3Lower Secondary 24.0 16.9 21.3Primary 44.5 39.8 42.3Koranic School 26.7 41.5 32.7
Total | 100.0 . 100.0 100.0
Source: Recensement Ggndral de la Population, 1980
Although the above figures may represent a situation more favorable than itactually exists in the country, even if approximately correct, theyindicate that the level of education of the adult population is very low(only one-quarter of the literate population has had any schooling beyoadpr_mary level. Furthermore, the poor quality of education, in particularat the lower secondary level (Annex 1, para. 15) compounds the problem.The difficulty in finding qualified high and medium level staff both forthe public and private sector is a direct reflection of this situation.
1.12 Available information indicates that nutrition and healthconditions in the Comoros are extremely poor. It is estimated that onehalf of all children die before reaching age four and most children sufferfrom malnutrition and intestinal parasites. About 80% of adults sufferfrom malaria and other diseases, such as tuberculosis and leprosy, are notuncommon.
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1.13 The Labor Force. Within the population 12 years and over. 99,463(80% rural and 2QZ urban, 74% males and 26% females) were reported asactive by the 1980 census. This number represents 29.7% of the total
population, which would appear to be a relatively low share if comparedwith other countries in the region. However, this figure may underestimatethe activity ratio in as much as it excludes housewives, who in rural areasperform part of the agricultural tasks. Regarding the employment situationof this active population, the picture is rather grim. Only 58% reportedto be in permanent employment while the rest either did not reportemployment status (15Z), or reported to have had some sort of temporaryemployment (14%) or no employment at all (13%) during the last year. Urbanunemployment, as it is the case in most developing countries, wassubstantially higher (19.3%) than rural unemployment (11.8Z). Improvementof this dismal situation will only be possible through economic developmentwhich in turn hinges considerably on raising the quality of education andtraining.
1.14 Of the active population recorded in the 1980 census andreporting their branch of activity (28% did not provide this information),almost three-fourta were engaged in agriculture and fisheries, about B% inindustry and cons.ruction and the rest (about 17%) in services (commerce,transportation, finances, social and others). Regarding their type ofemployment, the reporting population was classified as follows:
Type of Emplovment - 1980
Numbers ' Distribution |
I Employers 468 0.6| Self-emploved 46,856 64.4"age and Salarv Earners and Trainees 15,623 21.5Family Workers 9,S03 13.5
Tocal 73,010 100.0
Source: Recensement General de 'a ?opulation, 1-980
The self-employed grouD taker together with -amily *or';ers accounts .oralmost 80% of the active population- This -roup is consti;tuted rainly bypeople enoaged in the exploitation of small farms. For extension servicesto succeed in helning the groun iiprove their lot, it is extremelyimportant for the farmers to have attained at least a minimum level ofliteracy and numeracy. Thus, the need to reinforce primary education isnot only ar. issue of social equity but also an economic issue.
1.15 Among the -waae and salary earners, the most important group isConstituted by those en-aged in Government services, estimated at over5,600 workers. Over 60% of these workers are in the categories support or
contract labor, many of them redundant, while high and medium level
managers and technicians are in dire shortage accross the board.Furthermore, among those occupying high and medium level positions, manyare not qualified for the job, either because they have been trained infields other than that of their present occupation or because they aresimply underqualified. At the roots of this problem is the low quality ofeducation in the country compounded with a lack of selectivity and controlof those receiving external training. It may take as much as 8 years for aComorian student to obtain a four-year college degree (para. 2.15-F). Onceabroad, they often change the field of study, and if they return (many stayabroad), they may be uprooted and might have difficulty adjusting to thecountry conditions. The shortage of qualified medium level staff such asaccountants or secretaries is also one of the factors contributingto the poor performance of some Government departments. The implicationsof this poor performance of the public sector and the urgency to correctthe situation are well understood and a number of programs of training andtechnical assistance to cope with the situation are under preparation. Forexample, a Uorld Bank/Unesco Cooperative Program study which identifiestraining needs and proposes programs for the training of medium level(upper secondary equivalent) manpower in technical, commercial andmanagerial skills has been recently completed 4/. This study concludesthat in order to cope with the manpower demand in the above fields,technical/industrial training programs should have a yearly output of about80 trainees and managerial and commercial programs of about 50 trainees(para. 2.15 E).
1.16 Recent Developments and Prospects 5/. In recent years theeconomy has expanded at about 4% per year or about 1% Der year on a percapita basis. This growth has been basically generated bv investmentrelated activities depending on i*nvestment totally financed from externalsources. At the same time a number of distortions have been emerging,which iF not corrected in time could result in a reversing of the growthtrend. Fiscal and balance of payment deficits have been increasing and theexternal debt service has attained alarming levels. To a great extent thedistortions are a reflection of the Governsent's weak management anddecision-making capacity. Crucial decisions on investments and budgetaryallocations have been made disregarding national priorities and without anassessment of ulterior consequences.
1.17 Programs including extensive training for Covernment officialsresponsible for the decision-making and operation of the oublic sector, andtemporarv technical assistance are being developed. If these programs aresuccessfully implemented thev should contribute to strengthening publicsector management capacit-y and ultimately to the correction of emergingdistortions. Also iE the econonmy is to continue to grow, a steady inflowof external resources wceld be required in the foreseeable future.
4/ Emploi et Besoins en Main-d'Oeuvre Oualifi6e, February 1985 by Unesco,Paris, Division du Financement de lVEducation.
5/ For more detailed information on the subject see _conomic '.Memorandumissued in 1985.
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II. GOVERNMENT POLICIES FOR THE SECTOR AND PROPOSED
CORRECTIVE MEASURES
Bank's Knowledge of the Sector
2.01 Knowledge of the sector is basically limited to a 1979 UnescoEducation Sector Memorandum (ES9M), a school mapping exercise also preparedwith Unesco's assistance (1981) and the World Bank Staff Appraisal Reportof the First Education Project, dated November 16, 1981. Other than theinformation provided in the above report and which need to be updated,minimal documentation and a poor data base of the sector are available. Asa result of that limited documentation and since this is the Bank's firstESM, this report includes a comprehensive description of the educationsystem (Annex 1), updates statistical information, and reviews the policiesand strategies of the Ministry of Education.
Education Financing
2.02 Budgetary Expenditures in Education. The expenditures of theMinistry of Education (MEN) are the most important single item in theGovernment's recurrent budget, accounting for over one-fourth of thetotal. Furthermore, this YMEN budget excludes the salaries of expatriateteachers and some school material financed by bilateral assistance, therental expenditures for the provision of housing for expatriate teachers(included under common expenditures) and the expenditures for specializededucation under other ministries (agricultural and health education). Ifall expenditures in the sector financed by the country budget are takeninto account, the share of education increases to about 28%- which is highin comparison to the 18.5% average for the region.
2.03 The very high share of the budget can be explained by thefollowing factors: (a) education is free at all levels; (b) enrollments, inparticular at the secondary level, are high; (c) student-teacher ratios arelower than in many countries in the region; (d) teacher salaries forpre-primary education (Koranic schools) are Government financed; and (e) asubstantial number of expensive (because of very high repetition rates)scholarships are provided for higher education.
2.04 Because of the temporary decentralization of island affairs(para. 1.05), budget data prior to 1984 are not comparable with those ofthe last two years. The table -which follows indicates the distribution ofthe budget of the MEN, which includes the bulk of the Government'sexpenditures in education, in 1984 and 1985.
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Distribution of MEN Recurrent Expenditures, 1984-1985(in % of total)
Memorandum ItemsI1EN as Z of total recurrent budget 25.0 25.5MEN as x of GDP (projected) 3.8 4.0
1/ Includes primary teacher training.
Source: Annex 2, Table 2
2.05 The level of expenditures in education is a major concern inrelation to limited Government revenues. In addition, the inefficientdistribution of these expenditures within the sector is an even moreserious problem. The above table indicates an alarming neglect for mediumlevel vocational/technical training which is allocated onlv about 2% of thebudget (para. 2.15 E), while higher education takes over 20% of theresources. Furthermore, within this level, fellowships payments accountfor about 852 of the expenditures. Although the Governmenc has indicatedthat it has halted the provision of fellowships abroad for high schoolgraduates (in relation to manpower needs, there is a sufficient number offully funded fellowsnips for high level training provided by bilateraldonors or within specific projects), it appears that it has continued toprovide substantial supplement for fellowships partially financed fromabroad and has increased rapidly the number of generous fellowships forstudents attending the Ecole d'Enseignement Suxprieur de ".vouni. This has
resulted in a higher total annual expenditure (para. 2.15-F) 6/. Tocorrect this situation, as soon as present students complete their courses,all further budgetary financing of fellowships abroad should bediscontinued; enrollment in Nvouni should be carefully controlled andstudents allowances restricted to those deserving students who have noOther source of financing. it is advisable that student assistance beprovided through a bonding loan scheme.
6/ Fellowships granted to Mvouni students exceed the salaries paid to themajority of the primary and junior secondary teachers.
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2.06 With regard to secondary education, still a high share of theexpenditures relates to fellowships for the upper level, although thesehave been reduced significantly in recent years. Furthermore, there areindications that in the revised l985 budget they may have been definitelyeliminated 7/. This would represent an encouraging progress in reducingfurther the unit cost at the upper secondary level, which in 1980 was oneof the highest in the region. On the other side of the balance, both forsecondary and primary education, there is a serious underfunding ofeducational materials: only 5.4% of total expenditures in secondaryeducation and 1.7% in primary education (excluding Koranic schools) areallocated to such materials. Notwithstanding some bilateral assistance inthe provision of these education materials, if education at these levels isto jecome effective, allocations for these materials should besubstantially increased: on a per student basis they should at least betripled for primary education and doubled for secondary education.
2.07 Relating to the lower levels of education, the Government'sfinancing of pre-primary Koranic schools (tentatively estimated to accountfor over 7% of total expenditures of the MEN) places a heavy burden on thebudget, and extends Government's responsibility for providing basiceducation for an unreasonably long number of years. In most countrieswhere pre-primary Koranic education is provided, this is fully financed byparents and communities. Thus, financial assistance of these groups shouldbe sought, and budgetary savings applied to the improvement of thepresently underfunded primary education.
2.08 Teacher Salaries. Local teachers' salaries in the Comoros areamong the lowest in East Africa. This reflects the general low level ofsalaries prevailing in the country -no general salary increase has takenplace since the late 1970s. However, withia the prevailing internal salarystructure teachers' salaries compare rather favorably as is shown in thefollowing table:
Average Annual Salaries
I' age and Salary Earners Teachers' Salaries(1980 Ceasus) (Preliminary 1985 Budget)
x Ratio Z RatioSelected (000 FC) .National Level of (000 FC) National,Groups Average Education Average
National Average 288 100.0 PrimaryUnqualified 352 122.2
7/ The data for 1985 in Table 2 of Annex II relate to the preliminarybudget whicb includes the fellowships.
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A problem which is probably more serious than the low level of salaries isthe frequent delays in payments. These payments are made on the basis ofpromisory notes, the cashing of which may take three months or more. Thisrequires continued visits to the Bank which are reflected in high teachers'absenteeism. The Government is making particular efforts in trying tocorrect this situation.
2.09 Unit Costs. The unit costs for primary and secondary education in1985 have been tentatively estimated as follows:
The above unit costs are among the lowest in the region. In addition tothe comparatively lower salaries of the Comorian teachers as compared withthose in other countries and as indicated earlier (para. 2.08), onlynegligible amounts are spent in educational materials. The particularlylow unit cost in lower secondary education is due to the fact that themajority of the teaching staff at this level consists of secondary schoolgraduates, who are doing two years of national service prior to obtainingscholarships for higher education, and who are paid salaries comparablewith those of the unqualified primary teachers. From an educational pointof view, the employment of these secondary graduates as teachers has provento be very deficient (para. 2.15 D). Because in upper secondary educationall teachers are qualified, the unit cost is notably higher andmore in line with those of many countries in the region. A number of theteachers at this level are expatriates paid by external donors, but theyare housed by the Government at a cost similar to the salary of a qualifiedlocal teacher. As shown in the preceding table, if all fellowships forupper secondary students <were eliminated, as it appears to be theGovernment's proposal, a significant reduction in unit cost would beachieved.
2.10 Projection of Education Expenditures (Annex 2, Table 3). If thepresent policies regarding enrollment increases, student-teacher ratios,fellowships abroad, etc. were to remain unchanged, the quality of educationwould continue to deteriorate, while Government expenditures in the sectorwould become unmanageable. For example, between 1985 and 1990 theproportion of unqualified teachers in secondary education would increasefrom 53% to 62%. Regarding budgetary expenditures, those of the MEN wouldincrease by over 25% in real terms bet-een the above two years, while under
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the very optimistic assumptions, the total Government budget would increaseat most by 15% In the same period. Thus within five years, the share ofeducation in the total budget would increase from 25.5Z to about 28Z.
2.11 In contrast with the above, if the main change in policiesproposed and substantiated in para. 2.15 of this report (summarized at thebottom of Annex 2, Table 3) were implemented, in 1990, with the same realresources allocated to the MEN in 1985, a more efficient educational systemwould be operating. This system would be more effective from themanagerial, educational and pedagogical points of view; it would also bemore consistent with manpower needs and more equitable. The distributionchanges in allocation of resources from 1985 to 1990 resulting from theproposed policy changes are shown in the following table:
Alternative Projections of Expendituresof the Ministry of Education - 1990(in Million of FC at 1985 Prices)
1985 1 1990 7
Adjustment Xo Basic Incorporating |Level of Education Preliminary Change in Policy l
The proposed policy changes would affect most strongly the primaryeducation by allowing for an enrollment expansion which would halt theincrease in the illiteracy rate and improve the quality ,i education byincreasing the provision of educational materials per student. Forsecondary education, the proposals entail significant improvement inquality by limiting its expansion in a manner more consistent with thesupply of qualified teachers and labor demand and. by also increasing the
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allocation of educational materials per student. Regarding theadministration budget, provisions are made for the reinforcing ofeducational services through the provision of qualified addiditionalstaff. The technical/vocational education budget is proposed to be doubledin 1990 to provide the necessary financing for the efficient operation ofprograms which exist only in name and for the forthcoming new program fortraining medium level administrative staff. The resources for increasingallocations to the levels of education mentioned earlier should come fromthe elimination of Government wastefull financing of scholarships abroad(para. 2.05), reduction of overgenerous scholarships for students attendinghigher education courses at P1vouni (para. 2.15-F) and also the suggestedgradual financial disengagement of the Government regarding Koranicschools.
2.12 Investment in Education. In the Comoros about 95% of theinvestment is financed through foreign grants or credits 8/. TheGovernment's capital budget covers basically the Government's counterpartfor this external assistance, while the external assistance itself ishandled through extrabudgetary accounts which are beyond the control of theTreasury. It is estimated that extrabudgetary expenditures increased from32% of GDP in 1980 to about 57Z in 1984.
2.13 The documents prepared for the 1984 Donors' Conference includeestimated actuals of budgetary and extrabudgetary investment expendituresby sector for the period 1979 through 1982 as well as projections for theperiod 1983 through 1990. The data indicate that the share of education inthe total, although increasing, is still very low: about 3% in 1979-1980,6% in 1981-1982 and somewhat over 7% for the projection period 1983-1990.However, these percentages may understate the real share of education andtraining in as much as substantial training is provided under projects inother sectors. Table lA of Annex II lists education and self standingtraining projects (some of them already completed, others underimplementation or programmed) describing briefly the individual projectcontent and indicating the source of external financing, if alreadyobtained. Among the on-going or completed projects major components arethe provision of teachers, physical facilities, and technical assistanceand fellowships for teacher training programs at the various levels. Aiong
proposed projects for which external financing has yet to he obtained themost urgent would appear to be the establishment of a program for thetraining of medium level administrative staff (accountants, secretaries,etc). This particular program is being considered for IDA and possiblyFrench financing. Other projects in this group, in particular those gearedto the expansion of facilities for secondary education should bereevaluated in relation to proposed policy changes and in relation to amore precise definition ofpriorities. Regarding vocational education, itwould appear of greater urgency to improve existing programs, rather thanto create new ones. In this respect, because of the limitations of thelabor market in the country, an assessment of specific manpower needs wouldbe required prior to the introduction of new training programs. Finally,
further expansion of the INE should be subject to a redefinition of its
8/ This excludes the direct budget support provided by France, whichalthough declining steadily in 1984 still covered about 23% of therecurrent expenditu:res.
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objectives and functions so its activities become coordinated with those ofother departments of the MEN. In the case of primary schools, no expansionof physical facilities would be needed in the next few years. The classesunder construction (para. 3.01), the recommended increase in studentteacher ratio and the use of secondary facilities vacated through theconsolidation of schools, should suffice to accomodate the expectedincrease enrollment.
Government Policies for the Sector
2.14 The education and training system in Comoros replicates thetraditional French model (Annex 1) which is not fully adapted to the actualneeds of a country with an extremely narrow labor market, and severelydeprived of natural resources. The newly independent country (1976) isplacing much emphasis on the development and improvement of its educationsystem. Largely due to its recent independence and subsequent politicalturmoil (1979-81), only the general framework of an education policy hasbeen delineated in statements of the President of the Republic or theMinister of Education. These general statements include the following:access to free primary education is a privilege of every citizen whilepreparing every child for fullest integration within the "milieu' 9/;there is a need to improve the quality of instruction and increase thespecialized or skilled training of the youth to better respond to theagricultural and other development needs of the country (the latter werestated as priorities in the July 1984 Donor's Conference documents).Basically, the HEN administration is based on general statements andcircular letters sent to schools. These circulars have yet to be compiledand issued as an integrated set of policies geared to meeting the country'ssocio-economic objectives should be established. Moreover, ways and meansto resolve major issues aad to rank priorities (e.g., universalization ofbasic education; objectives, content, scope and linkage of secondaryeducation, and vocational training; high cost of higher education andfellowships abroad not fully responding to the country's needs; unit costsand financial constraints; increase in illiteracy rate, high repetition anddrop out rates) need to be expressed mbre clearly within an implementationplan.
2.15 This report reviews Government policies, the effects of thesepolicies and, where applicable, recommends some possible actions. Thepolicy issue section below is divided into the following headings:administration, pre-school, primary, secondary, vocational/technical andhigher education levels.
9/ Integration within the -milieu- using subject matter related to Comorianenvironment and social practices.
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2.15 - A. EDUCATION ADMINISTRATION AND FINANCING
Policy Issue/Actual Situation Effects of Policy and Recoeuendations
a) Lack of nill formulated policies In the Without written officLal policies, administrative decisions are madeeducation sector. During the last four years on an ad hoc basis. Urgently needed is assistance to the newlythe Government, with consultant assistance, has appointed planner at the MEN to establish a sound collection of dateprepared reports on policy proposals for and technical assistance co assist with the development of long-termliterscy, pre-school education, distance plans and to help the Government implement Its policies.teaching, a school mapping exercise, andcurriculum development; but the majority ofthese policies have not been formalized orimplemented by the Governaent, pimarily becauseof the shortage of quallfied and experiencedadmtnistrators and planners.
b) MEN activities and decision-making is When the Mnister is away from the MEN, alL dectsions and activitiescentered around the Minister. To improve the are at a standstill. Updated job descriptions for the directors ofadministration in 1984, following the primary, secondary and higher education, the education planner,centrulization of education administration of accountants, and other senior officials should be prepared at thethe three islands, the MEN issued a circular earliest. The dencriptions should include both the administrattve andoutlining the responsibilities of each diretion. financial responsibilities of each director. Also once agreed upon,
the budget should be decentralized to the directors to speed up theimplementstion process. The recent creation (January 1985) of theposition of Secretaire d'Etat or Permanent Secretary should help withthe day-to-day administration of MEN as long as the incumbent in theposition delegates sufficient authority to the concernedDirectors.
c) MEN staff have little management and Major decisions are often based on personal impressions rather than onadministrative experience/training. Compilation supporting data. With minimal data and records, the budgetaryof records and filing of administrative data justification to the Ministry of Finance and request for assistanceneed strengthening. MEN should revtew data from donors are difficult to prepare. Following an analysis of theneeded for efficient administration and decision data and records needed for sound administration a list of skillsmaking and assign staff responsible for their necessary to execute each task should be established and on that basiscollection and routine updating, a training program of existing and new staff should be implemented
in coordination with the Ministries of Finance and Planning andexisting institutions.
d) MEN concrol over tcs budget needs to be The MEN should begin preparing budgets based on unit costs and actualimoroved. The main issues needing attenMton are expenditures. MEN and the Ministry of Finance should agree onthe preparation of budget and the allocation of formulas to cover inflationary increases in the cost of educationalfunds within the MEN budget. During the last materials. There should also be a basic student enrollment growthfew years che MEN has prepared budgets on the policy and on that basis budget their teacher needs and relatedbasis of ongoing needs but their allocations of expenditures. To assist the Government rationalize the situation.resources from the Ministry of Finance have been joint consultant assistance to MEN and the Ministry of Fltnance shouldsmaller than required co operate specific new be considered at the earliest. SiuulEaneousLy a craining program forand old programs. While receiving lower the MEN staff should be organized. The budgetary process should beallocations the MEN Ls often forced to accept reviewed in order to arrive at a more equitable distribution. Fundssteady increases in enrollments. This approach from the higher and secondary education should be transferred to theof imposing increased enrollments on the one specialized training (vocational/technical) and primary educationhand and not providing the necessary resources (para. 2.07).to operace the programs on the ocher. cannotcontinue since it results in the MENoverspending its budget every year. Allocationof MEN Budget. Budgetary allocatlons areinequitable. For example in 1984185 budgetarydistribution was 202 for about 253 studentsenrolled at the higher education insEitution ofMvouni or studying abroad on fellowships. whileonly 25.5: was devoced for 18,684 secondaryscudents and 36.3% for 61,905 primary pupils.
2.15 - B. PRE-SCHOOL EDUCATION KORANIC SCHOOLS
Policy Issue/Actual Sltuation Effects of Policy and Recoemendations
a) Government is paying the cost of the Koranic Education costs are increased Without anuffticent parentalpre-schools caught in Arabic. Teaching quality participation and, according to the Unesco Sector Report of 1979,and pedagogical methods are poor and do not without improving the children's performance in primary school.prepare pupils for primary schools while Comoros should, as in most countries, have pre-school costs covered byextending the basic education to 8 years. the parents. In the imediete future, the budgec for pr-_chool couldPre-schools operate independently, without be frozen, end plans should be prepared to Increase over a period ofsufficient control of quality and teachee ten years parents and community contribution for both material costsqualifications. Comoroas Government is financing and teacher salaries until they absorb the total costs of Koranicpre-school education contrary to the majority of schools. Covernmenc could retain pre-school specialists at MEN tocountries (developed or developing), assist interested parental groups upgrade teaching and adjust
pedagogical content of the programs. Funds saved could gradually betransferred to cover student/teacher materials in primary schooleducatlon, with a view to improve the quality of basic education.
PRIMARY EDUCATION2.15 - C.
Most children attend school with the enrollment ratio in primarya) Primary Education is a right of every child school being 77X in 1983-84. Parents should be asked to cover part ofwith all the children attending free of charge. the costs by paying books user fees or assisting with the construction
of classrooms.
b) School entrance. The present policy La that The cost per graduate student is very high. On the basis of theall children should enter primary school by age 1983)84 transition rates, the Government has to pay 6,112 pupil years8 and leave the system by age 15. The few instead of 2,238 (without repetition and drop-outs) to graduate 373children who complete primary schooling take an primary pupils. Since in 1984 over 802 of grade one entry studentsaverage of 8.3 years. The system is ineffLcient were already of ages 6, 7 and 8, the Government should consideraveraging 292 repetition and 10% drop-out enforcing its policy of not allowing children over 8 years of age torates. The age range of 5 to 15 among first enter the system. For three years, overaged students would' be allowedgrade enrollment is not conducive to effeccive to enter the system within special classes organized to accomodatelearning, them in order to do away with the 5 to 15 age range presently enrolled
in the first grade. After 3 years, all children would be expected Cobegin their schooling prior to age eight. To reduce repeaters anddrop outs, efforts should be made to improve the supply of educationalmaterials to students and the upgradiag of unqualified teachers shouldremain a priority.
c) Catchment area for a primarv schools has No teacher should teach more than three grades. Government shouldbeen defined as the area within 3 kilometers of implement recomendations of the mapping exercise (Unesco 1981) whicha school where ac leasc 70 pupils reside. If a idencifies, on che basts of populatLon, the primary schools whichschool enrolls Less than 70 scudents. each should be closed and those to be expanded. Efforts to Lnvolve theteacher would be assigned two or three grades. population in the construction of classrooms should be consideredHowever, at present too many small schools (Annex 2, Table 12 (a-b), lists the viable primary schools identifiedusually staffed with unqualified teachers are in by the mapping exercise by island and proposed scructure of primaryoperation. Low scudent-teacher ratios make them classrooms, enrollments).particuldrly expensive. Furchermore, otften thequalicy of instruction is poor, che facilitiesinferior, and serious shortages of furnicure andeducational materials prevail.
d) Teacher workload. The present policy states Student-teacher contact/instruction time varies from 12 to 22 hoursthat a teacher should ceach 22 hours weekly out weekly with most cases averaging about 15 hours weekly. Due to poorlyof a 25 hour-week; school cimecabling with qualified teachers, high teacher absenteeism and lack of educationaltriple shift should be avoided. Teachers teach resources, iastruccional time is not used efficiently, resulting inonly one group of students, but because of a poor quality of education. Efforts should be continued co eliminateshortage of classroom facilities two teachers all triple use of classrooms. The Government should considerusually share a classroom (87% of the classrooms reviewing its policy of assigning a teacher for every student group.are used for two and 17% for three student In an effort to reduce the number of unqualified teachers thegroups), therefore they are unable to teach the Government should experiment with qualified teachers teaching tworequired 22 hours. groups of students. Each teacher would be expected co teach about 7
hours daily: 3! hours to each group in one classroom. In compensationthe teacher would receive a salary supplement of 50 of its originalsalary. The total salary cost would remain about the same but with ahigher percentage of student groups being taught by qualifiedteachers, increased teacher-student contact cime and the supply ofmore materials, the quality of instruction should be improved.
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Policy IXssue/lcual Sincation Effects of Policy and Recdons
a) e!Sherpupil ratio CTPZ). Gowernmc plan Reducioo it TPt has simply iLcreased the number of unqualifiedhave be to gradually reduce TM. The 1:47 teachers and increased cosrs. The incree In number of unqualifiedratio in 1980/81 has been reduced ro 1:39.5 in teachers appears to be retarding possible qualitative improvemencs1983/84. Ths reductio increased costs with expected from the recent supply of textbooks. With TPR of 1:39.5.no evidence of Improvement of quality. Coooros's ratio is lower than the average 1982 TPB of 1:43 In the
Eastern Africa countries. The TM should soc be lowered any more.but, in fact, could be increased up to 1:45. Such an increase wouldhave in 1983/84 reduced the nmber of teachers required Erom 1.607 to1.370; the result being chat 231 fewer unqualified teachers wou haveIeen emplored. With the average salary of unqualified teachers being352.000 FC, about 81.312.000 EC ($168,350) could have been saved or-sed for mth needed teacher/pupl. macerials or construction. ofcTsl,roous.
f) SapplT of primary teachers* Because The CovervnAt should establish at DEPTrC an itake po0icy marchig theGovernn recognized the med to improve the e for qualified teachers by island. Since t980, there h ben aquality of primary education and the need to reduction of teacher traineC from Grande Coeoce mid wobeli lslandstrain teachers it establibed a Naciosl Primary whbch bthave abou 70Z unqualified teachers, while enrollment fromTeacher Training College (SETC). In 1983/8I Anjonan (which bas only 40: unqulified teachers) has inceasedthe College. iL teworay facilities. enrolled Government should sruct= he int ac Sp=C to fit each island's90 teacber r-ainee. A school is being built teacber shortages during the next 10 Years. To meet the teacherwith ITA assisctace which in 1986 sbould enroLl needs, the distribution of graduates from SPTC should be as follows:I90 teacher trainees. The output of the college 56 Grande Comore. 392 Anjoua-n and 5% .Yobell. Taking intois not presently being distribured aCcording to consideration the population growth of 3: p.a.. a TPE of 1:45. apriorities among the three islnds :teacher attrition of 4Z p_a. and an annual output of 90 quali£ied
teachers froe MP=C. complemented by the upgrading of about 100existing teachers through in-service program. cooons could by about1994 have a fully certlfied contingency of prLMary teachers. If lesscostly Ln-service program 1/ (lower coat training/salaries) is notcontinued by the National Institute of Education (DMS) after 1986(when presenc program ends), ehe Governmenc should plan to run atiPTTC both a pre-service (during regular year) and in-service (during
holidays) programs_ Output of teacher training will upgrade quaiityof primary education through increased knowledge and improvedpedagogical nethods. The operation of the new colLege Ls expected toadd about USS30.000 (FCL4.000.000) recurrent cost p.a. to MNM budget(esctiated coscs are drawn from present unit cost of $8000 perstudent for educational materials and eight salaries or about S2.7GO?.a-) -
g) Pri=arv teacher in-service programa Jich In .984. abouc 500 unqualif ed teachers were following courses_IDA financing and French '._A-. an in-service la-service trainees :ust =omplete all courses and assl4nments and thenprogram to upgrade present reacners is ongoiag. cake a certificaction exam. In 1983, 58 such reachers were certifiedusiag distance learning and summer holiday and another exam w-as scheduled at che end of 1985. In-service programcourses for the upgradiag of unqualified is the most economical and fastest way to iaprove quality ofteachers, teaching. SLnce ln 1984 only 21; of the primary teachers wexe
qualified, the lowest percentage in East Africa. all efforts should benade to continue the in-service progra2 until 1990, witcb the purposeof upgrading about 100 ceachers p.a. Since salaries for teachersupgraded through in-service are much lower than for chose graduatingfrom NPTIC (about FC580,000 versus 420,000 p.a_), in-service trainingof existing teachers is the best way to abtain qualitativeimprovements while keeping salary costs affordable to Comoros_
1I Funded by IDA First Education Project.
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PoliCy Issue/lcCual Situation Effects of Policy and Recoomendations
h) Books and education materials. In 1984 Since Covernment will find it difficult to pay for the replenlshmentbooks were supplied (one book for every 2 of educational materials, it has been advirsed to develop a policy ofstudents). free of charge. Covernment's user fees to make replacement of textbooks possible. The MEM hascontribution towards books and educational prepared such a policy but the Cabinet has yet to approve lt. If suchmaterials has beea margimal. It has depended on user fee scheme Ls not approved. within a few years pupils viii againdonor agencles or bilateral agencies to provide be without books since che maximmu life exr-ectancy of the books isthese books. French. matbheatlcs and social three years. At thac time. it is likely that donors will be lessstudies books and radio. are being supplied to responsive to a request if no self-financing efforts have beenprimary schools through che DA Credit and demonatrated. The Government cannot continue to give free textbookssupplemented by the donation of French books by and materials; this system makes it dependent on donors forthe French Government. Once these supply replenishment on a regnuar basls. A user fee should be charged, atefforts are completed, no potential the earliest to enable tte Government to replace the textbooks everyreplenishment is ln vLew, unless funds are three years. By charging each child only about 116 of the textbookobtained from either the users or ocher donors. value pa. while assuamLng two stude-ts would continue to share theSince donors' contribution of educational same books, the cOat to ths parents would be mini4al but replenlshectmaterials other than textbooks is very limited, would be secured. The schems should make allowances for those csesthese are in short supply and are negatively where the parenta would be unable to pay the usage fee. Cowerimutaffecting the qualLty of education. should therefore consider that its contrLbution could be about 5: of
annuaL usage fees to cover for such eventuality.
1) Languace polcy. Teaching iL Koranic school The majority of Comorians for reLxfious reasons. have attendedis in Arabic. Primary education is taught in Koranic schools (76: of the 4-5 years old in 1944) for7 two years.French. The Comorian language (unwritten) is Learning is based on memorization and usetery of Arabic script isspoken by the majoricy in daily transactions, miins-l. In 1980, 511 Comorians were considered illiterate. with thewhile French and Arab are the offlcial result thac a large percentage of the populatLon has no access tolanguages. French is used by the Covernmenc for printed materials and has limited understanding ofofficial buslness, comercially and for all Governmentcpubliclcovisercial information. Considering thac theexternal contacts. Arab is Snly spoken by small ComorLan Language Is unwritten and its inclusion in the primary schoolelite groups and its teaching is noc mandacory would noc be advisable at this stage, the writing of the language (forat the secondary level although such pressure is about 400.000 inbabitants) would increase the people's isolation. Inbeiag made and 3 Arabic secondary schooLs are addition the cost of writing and prineing of books, etc., most likelybeing estabLished l/. To cake the situation could noc be met financially by -be country. The Linguistic isolationmore difficult, differenc Comorian dialects are of the small population would make social, political, industrial andused in each island. coomercial contact asd the possibilicies of further studies abroad
much more difficult. Also, since such a btgh percentage of the peopleare tlliterace, an effort should be made to launch a literacy cmpaigain French. Out of such an experiment possibilities of lingulsticlinks of French to the Comorian Language night arise. The Ulteracycampaign could also be used as an avenue to collect. compile andrecord Comorian fablest hiscory, etc which could be integraced to cheschool programs taught in French. As far as Arabic is concerned. moreattention should be given to pedagogical approaches to be used inteaching Arab language at the Karaaic schools and since i: is only chelanguage of small elite it should continue to be taught as a languageoption ia secondary schools.
l aclusion of m;lieu scudv. rhe ELN is Since tee Government bas adopted this policy. they have obtainedmaking efforts to develop sone locally adapced donors' assistance to escablish school gardens. Other programs areskills (in agriculturelhome care) among prinary established in name only. The lack of specific qualiLfications of thestudenes. teachers to teach the required skills, combined with the shortage of
equipment and materials. has made the iLplemencation of the policyextremely difficult. Also, funds that should be used for baslceducation are often diverted for the purchase of equipment. or toolswhich receive limited use. Finally. parents resisc chis policybecause chey want their children to learn the 3R's which give themmore chc-ces to continue their education and to obtain futureemployment. The policy of relating the school activities to thesocial. cultural and economic environment is essential. Suchintegration can be done better by adjusting the content of the books,and concepts taught in respect to che milieu. The timited fundsavailable to the Government should be spent on adaoting books co theailteu, tratning teachers, and providing then with clear syllabi whichspecifically outline the locally based skills to be taught.
1/ Wich Saudi Arabia support.
Policy I sse/Actual Situatlon Effects of Polley and Eecommendations
k) COnDrOS Is experLencing hLgh drop-out and It ls essential that the Government reduce the drop-oue and repetitionrepetition rates at Primary level In 1983184 rates.t Ic £ r _ ded that Governe nt imdiately adopc a rew
the average rates were: drop-oucs 10: and promotion policy. That is that in normal circumstances. a ch£id berepetition Z9X. Such high rates are very costly allowed to repeat only once during the first tbrec cradesco the Covernment, which Ls nw financing the (CPl-C22-CEl) and onc in the next three grades (C2-CNl-CX2)total of pr imry educatioc. Uslng these rates Sliultaneously. the MN could consider providing remedial teaching toin a single cohort of 1000 pupils, thce sysres students who are falling behind and Who would otherwise bee todemonstrates Its inefficiency, with Government abandon the system. Efforts should be de to reduce. over about a
paying the cost of 16.4 popil years for each five-year period. the repetition rates from an average of 292 to aboutgraduate. The total number of pupil-years used 102 and to reduce the drop-out rate from 10Z to (particularly in theby graduates Is 3,105 resulting in a 22.4Z of first grade which was 16% in 1983184) about 7: (Anne IT. Table 4).excesa years u-sd by graduates. ouc of the To achieve such reductions. qualtative Lmprovewnts are needed.cohort. 610 students drop out vhile using 3,006 These could be a establisig policy which wold agn onpupil-years (Annex 2. TabLe 4). a first priority basis only qualified teachers to grades l. Second
prlocity for qualified teachers' assignment would be given to grades 6and chird priority to grades 2. First grade enrollmet per classhould be limited to a axim of SO pupils. If possible grde Iclasse should be allocated a classroom with no double shift. Doubleshift use of classrooms and teachers should be Limited to grades2-3-4-5. Grades one and 6. the t-wo levels with the highest repetitionrate. would then obtain improved teaching and an i20edLateamelioration of the system would follow.
L) Literac' in Coooros sust be Increased. If Government continues to limit irs enrollments grovth to abouc 1;
according to the 1980 population ce5nus, ehe (ag done in the last two years) and no major adultlout-of schoolitseracs rare in Cm oros has been declining, literacy caMpaign is launched, the illiteracy rate will continue to
It is estimated that in recent years literacy grow. Covernment should establish a policy tO increase its first yearhas grown at about 1.1: p.a. while the intake to macch the population growth of about 3Z, in order to givepopulation growth has been about 3Z p.a. the majority of che population the opportunicy of baslc education.
The growth of the first grade intake during the last five vears. hasvaried from 7: to less than 1:. Such variances are not conducive torational planning of resources. Seeded is a specific intake poLicy=which would enable rhe .XE to better plan teachers, requiredfacilities. educactonal materials and budgecary resources.
n) Adaotacion of oroerans/textbooks. utch Adapted books should assist vLth nhe learning process since the best
donor assistance. che French books have been transfer of knovledge is from che known to rhe unknown. Also,adapted and sucial studies books have been adapting concepts to the local environment will makP ir easier for theproduced locally. These books are now being students to relate co vhat they are taught. The Governnent shoulddistributed co the schools_ continue the less esgenSive process of adapting existing books to the
local needs. Ir should preferably adapt other %frican books ratherchan European. During the adaptation of books basic concepts ofoooulation education including fanily size. resources needed toproperly house, feed and educate the children should be included. Tomaximdize Che investment in books and lengthen their life, it should beenvtsaged to supply schools with metal lockers (I per classroom) whereb.j.k~can be stored.
2.15 - D. SECoNDAR EDWCATION
Pollcy IssuelActual Situation Effects of Policy and Recoomeodations
a) MEN established ln 1981 a policy to reduce The hlgh enrollment lacreases are resulting in poor quality educationsecondary enrolloment through bLgher encrance since over 53: of the teachers are unqualified, (80S of the qualifiedstandards. Enrollments vere controlled in teachers are expatriates) and the facilities, equLpment and198 18Z but during the last three years instructional materials are all inadequate for effective teachlig.increased by an average of 14Z at the juaLor Poor quality of secondary school is evidenced by the fact that oversecondary and 32% at the senior secondary 60S of students studying abroad on fellowships fall their first yearlevels. The country enrolls about 41.3% of the of higher education study. MEN should continue to make the primary12-16 and 12.7% of the 17-18 age groups for a completion examinatioas which control the entry to secondary schoolssecondary average of 39.7 J The corresponding more restrictive by demandiag from all students proficiency in eachaverage rate was only 15% in other African subject, prior to their promotion. Enrollment growth in the next 5 tocountries in 1982. 6 years should be Liiced to about 12 p.. and subsequently increased
grdually to a rate consistent with the population growth. Ifenrollments continue to grow at their present high race, which impliestheir doubling about every seven year, the quality of secondaryeducation would continue to deteriorate while their financing wouldbecome unmanageable to the Governme
b) Students who pass the primary completion Promotion to secondary creates a bulge of students and lengthens theexamination have automtic and free access to number of student years the counCry must pay. With the presentsecondary education. Because che primary promotion and repetition rates the average number of years spent atexamination is udemanding and because secondary the junior secondary level is 7.3 instead of 4. ard 4 years instead ofeducation is free che majority of the scudents 3 at the senLor level thus greatly increasing the costs. Promotion rotry to proceed to it with marginal preparation, secondary should be based on the student achievements, and due to its
higher cost the selective group enrolled should pay book usage fees,and make contributions towards their education on che basis of theirability to pay. Secondary education should not be free and entryshould be allowed onLy following a strict examination process.
c) Cosc Reducing Measures. In 1982183 the ME14 The expansion of enrollments and the number of schools is caus:ngclosed the free secondary boarding facilLties costs to increase in an unjustifiably manner and the qu-lity ofand scopped paying for free transport co and secondary education to continue to decline. Analysis of similarfrom schools. The secondary costs were also to expansLon in ocher African countries has shown that in some cases evenbe reduced by L1ver student allowances the doubling in enrollments without additionaL qualitative inputs did(fellowships) based on special conditions -nd not produce an increase in output. The expenditures at the secondarydistance from che schools. These costs were in level need to be better controlled and attention must be d1rectedaddicion to be lowered by reducing che student towards the qualitacive improvement of the system racher than itsiacake and by the consolidation of smali expansion. Since che secondary scudents are already a privilegedinefficiect schools. The consolidation would in group whose potential future earning capacity is Cwo folds (estimatedturn reduce the number of teachers emploved and average for Afrira) chat of the primary graduates they shouldconsequentlv the coscs. Government must be contribute towards the cost of their education.complInented for ::s efforts to reduce coscsbut. che expected reduccion in expendituresresulting from rhe closiny of boarding The Governmenc should at the earliest implement che recoz3endactions offacilities and the reduction of transport the school mapping exercise and consolidate the schools (Annex II.allowance has not occurred as foreseen. The table 12). This consolidation should reduce the number of teacherspotencial savings have been absorbed Jy needed and enable the .MEi to better distribute the qualified teachersincreased enrollments. The Government proposal to maximize the benefits to the enrolled scudents. A policy ouclinirgfor the consolidacion of schools from a4 to 30 the acceptable student enrollment increases should be established tohas noc vet occurred. On the contrary. new allow che Governemenc becter cost concrol. Finally the Governmentschools are being creaced thus increasing the should collect informaeton on employment opportunities available ornumber of secondary schools to over 50. This lack of such opportunities for the graduates. The civ'l service isimplies uneconooicaL and inefficient schooLs. already overstaffed and the opportunities in the privace sector are
very limiced. The overproduction of secondary graduates. particularlyof the Baccalaureate (BAC) level, will only make che situation moredifficult for the Government since these graduaces' expectartons fromsociety are much higher. It might be worth consideri.g a policy oftraxting some of the students wich exportable skills. Bur. to achievethis latter possibilicy important iaprovements in quality must bemade. It is recommended that no secondary school should have lessthan 250 pupils.
Following consolidation of the secondary system all the schools shouldenroll about 500 pupils and have TPR 's ranging from 1-35 to 1:1-.0The present inadequace funds allocaced for maintenance of secondaryschools could be becter ucilized enabling M4EN to improve thequalitative inputs. Finally, the present trend of establishingschools in name only (without adequace staff or equipmenC) cannot becontinued. Schools should only be opened if funds co opersce. pay theteachers and supply the materials, are available.
Policy Issue/Actual Sltuation Effects of Policy and Recom_endations
d) Need to qualify National Comorian teachers The quality of secondary education Is very low and since enrollmentsfor the secondarv schools. Since over 60Z of increase steadily more teachers and facilities are required. Athe secondary teachers were unqualifled, the Government policy to qualify naelonal teachers is essential (Annex II.Government ln 1980/81 opened a pedagogical Table 6 projects teacher requirements under alternative enrollmentsection to train about 30 secondary teachers assumptions). For example, to arrive at a fully qualified secondaryp.a. All the qualified teachers are assigned to teacher staffing in 1999, assuming a TPI of 1:35 and a 3Z ps.the senior level (lydee) and the last year of enrollaeot growth, the output of the Teacher Training Progras atjunior secondary with the result that the Xvouni should be increased to 70 by 1987. To guarantee quality and tomajorlty of the students attending the first glve the new Cosorian teachers a chance to acquire some experience; itthree years of secondary school are taught by is reco mended that until 1998 the present number of expatriateunqualifled teachers (contract teachers drafted teachers be kept. It is also assumed that contract teachers willfor ewo years of service), continue to fill che unqualifled teacher positions at the junior
secondary level. but to improve the quality of their teaching it isrecommended that their orientation session be lengthened and thattheir assignments in schools be interaingled with that of qualifiedteachers. Starting about 1998 the nuaber of expatriates would bereduced by about 20 yearly and by the year 2004 the total secondaryteaching staff would be qualified Comorians. The replacenent ofexpatriate teachers by locals does not entall additional expendituresto the Government since the coat of housing them. which is itsresponsibility is equivalent to the cost of hiring a qualified localteacher. Thus, expenditures growth for secondary education would berelated to enrollment expansion. This expansion has been recommendedto take place at IZ p.a. for the next 5 to 6 years and co graduallycatch up with population growth thereafter.
e) Quality concrol of secondary examination_ The critical failure rate oE studencs going abroad following the BACControl of examinations has been difficult. is sufficient proof that the quality and content of secondaryparticularly during che last few years when education requires attention. To upgrade the quality of examinations,responsibiliry for the administration of che che Comorian Government should again establish a link wich an externalexai-nations has rested tocally upon the MEN, examination council. This examination body could help MEN prepare
becter examinations.
f) Iacroduction of Practical subjects. ith The Government has limited funds for the operation and supply ofassistance from the African Development Bank practical workshops wich the result that these programs are not(AfDB) the MEN5 is constructing and equipping functioning adequately. Where these programs have been organized theypractical workshops at 12 schools to teach lack: a) facilities; b) materials or equipment and; c) qualifiedhome-economics, woodworkicarpentry and ceachers. In most cases che learning process is only theoretical thusagriculture. Government plans to have all the defeating the whole purpose of exposing the students to practicalsecondary schools reach practical subjects. skiLls. Governament should be aware that it is insufficient to
establish programs if the resources to operace them do not exist. Itis unfair co the students and results In unproductive expenditures forthe country. Some exposure to practical sktlls is recognized asbeneficial if such exposure is relaced to the local needs. Toestablish practical workshops ac every secondary school in the Comorosis neicher feasible budgetwise nor from a priority ranking point ofview advisable. To reduce costs all training at the secondars levelshould avoid the purchase of expensive equipmenc and tools and belimited to hand tools. Ihe decision to establish a practical workshopac every school should be reviewed and the .MEN should look at theoptions which follow. The first one would be to purchase mobileworkshops to be used ac a number of schools in order to give all thestudencs an exposure to practical skills. This option is onlypossible if the MEN has strong administracive capabilicies andorganization, the recurrent funds for petrol, staff and maintenance.The second opcion would be to build praccical facilities at a limitednumber of secondary schools (2 Grand Comore, 2 Anjouan and I Moheli)J 1. tO distribuce students to these schools according to opcionsdesired. This option would require the transportation of students ona 1/2 day basis, thus. it would require the purchase and maintenanceof vehicles, and an adequate supply of pecrol. Distances travelled bythe pupils should be limited to one hour one way. The third optionwould be not to offer any practical subjects until the end of grade10. In this case, following entrance tests the students would beassigned co about 2 or 3 well equipped and staffed vocationalschools. Each school should have a minimum enrollments of 250students and would only teach termioal vocational programs. Due tothe limited market demand in certain skills the vocational schoolswould operate on a nodular system. Largely due to the shortages ofrecurrent funds and qualified teachers the third option would beconsidered the most appropriate at chis time.
Pollcy Issue/Actual Situation Effects of Polic and Racommandatlons
g) Secondary TPR should not exceed 1:40. The Other than MEU clrculara, the inspeetcrate and MEN staff do not have aTPa policy appears to be applied on an ad hoc handbook which specifies the acceptable TPI. teaching hours for eachfashion. No formalized administrative trailing course or program offered in the schools. Also required areLa available for the MEN officials, che clarifications in respect to the qualifications required by teachersinspectorate or school principals. Such a and adminlstrators. The number and types of programs allowed totralning is important to help these staff operate in a school should be based on a creditation system whichunderstand better Government policies and takes into account the schools results and qualification of theacquire the skills needed for their effective staff. Until a clear modus operandi is defined. qualltativeimplementation, Improvements of secondary education will be difficult. Urgently
needed La the reinforcement of MEN secondary education administrativedepartment. Also technical assistance should be recruited to help thedepartment develop, test, print and distribute to every school anofficial handbook outlining pollcies and the operatlon of theschools. Some of the above referred staff could be obtained from theINK. In fact, to avoid duplication of staff and reduce cost, part ofthe staff of the INE should be re-Integrated to the MEN Ln theprimary, secondary and teacher trainang divislon.
2.15 - E. VOCATIONAL/TECHNICAL EWUCATION
PoLicy 1ssue/Actual Situation Effects of Policy and Recommendaclons
a) Goverment needs to increase ics The actual situation is improving but the country's vague policieLsvocational/technical trainint capacity to better need to be reviewed. The new;y organized schools for the training ofrespond to the shortages of skilled manpower health and agricultural personnel supplemented by on-the-job trainingneeded for the development of the country. will assist the respective sectors in better responding to the staffCovernment, wlth donor assistance. has made needs within the near future. Because of the poor performance of themajor efforts to improve its training capacity vocational technical training institutions, skilled manpower needs forof skilled manpover. With IDA assistance, an construction and maintenance (refrigeration/appliance. vehicles andagricultural school with a potential outpuc of buildings), commercial and secretarial jobs are not being satisfied.20 p.a. will begin operating in September A study prepared by FAC, the conclusions of the July 1984 Donors'1985. In addition, training to upgrade staff Conference and a report by the World Bank/UNESCO Cooperative Programand fellowships abroad are being supplied under of February, 1985 indicare that a shortage of mid-level staff isan IDA rural developkent project, and French and seriously retarding the country's development in the productiveUNDP projects. A health school operating on a sectors. As noted in the Bank/UNESCO report, the Government urgentlynodular basis in cemporary premises is now requires the assistance of a training specialist to help thentraining 68 nurses. mid-wives and medical establish an administrative scructure for vocftech programs and aassistants. A new school is being built and coordinating mechanism with employers. On the basis of the manpowerequipped with IDA assistance. In addition, an needs identified in che report, a trainiag scrategy can bein-service trainlag program of the existing established. The training programs should secure thac their outpucsenior personnel and a fellovship training has acquired the knowledge and practical proficiency needed to performprogram are being supported by WHO and IDA at the tradesmen and craftnen levels. The worst result of poorhealth projects. A rocational program ac the training is that the country might still have to rely on expensiveLyc&e of .Mutsasudu in Aniouan enrolled in 1984 expatriates to do the work. It is therefore essential to developabout 120 trainees in trades (mechanics. qualitative voc/tech and business training programs for mid-levelbuilding trades and electricity) but due to the staff at che earliest. All courses offered should have direct linksshortage of facilities, equipment. and with employment opportunities.technically qualified staff, the quality of theprograms is poor and consists almost exclusivelyof theorecical courses. The banks and hocelindustry have partially resolved their personnelproblems by undertaking their own trainingprograms.
b) MIany emplovers prefer to train their own if the country is to imDrove che training and reduce the shortage ofpersonnel putting lnto question the skills mid-level personnel. particularly for the productive sectors, itacquired at the vocational institutions. The snould be willing to increase Lts budgetary allocation (para. 2.11)Public Service Comoission (PSC) with ILO for voc/cech training. The Bank/UXESCO report identifies the basic
Pollcy Lssue/Ahtual Sltuation (Cont'd) Effects of Policy and Recommendations (Cont't)
assistanee built a vocational school in Ousni to need for upgrading the Ecole Technique at Mutsamudu (to enroll aboutupgrade apprentLce carpenters. masons and 285 traiLnees) and to establish a business school to train about 120electricians. Due to Laternal couatry problems, trainees in secretarial and juaior accountancy skills. The Governmentthis school was unfortunately closed Ln 1979 and should also devise program to traln trainers. To help cover thenever reopened. The PSC also operates a recurrent costs of the voc/tech lnstitutions, the schools could searchbusiness school in Noromi, for about 180 for financial assistance from employers and contract jobs in the localtrainees but. due to the lack of facilities. comamnLties. In this manner, the school -ould st mltaneously earnequLpoment. and teachers the program is virtually funds to cover some of Lts recurrent costs, vhLle giving the traineeslamited to the traLning of typlsts. Ax the practical experience and. if possible, fni- to purchase their own
higher LnstiLutLon of Nvouni a management tooLs. Because of the size of the country and limited need of skilledtraining course (bigher level staff) and a one persoannel ln specific skills. the Government's policy to operate thetime course Eor journalists and radLio announcers vocltech and specialization institutlon on the modular system shouldhave been started to respond to known sbortages be supported.Sn personnel and to enable the country to haveits own newspaper and improve lts radiobroadcasting.
Major isaues that need attention in thevoc/tech areas are: lack of coordinLation betweenemployers and the training lnstitutions; lack ofadministrative structur to manage vocJtechmatters by the Covernmenr (now integrated to thetask of the Direccor of Secondary Education);inadequacy of programs to needs and their overlytheoretical nature; shortage of qualifiedtraiaing personnel; absence of on-the-jobtraining stages durLng which the trainees canapply thelr skills; and finally the shortage ofequipment, facilities, and materials requiredfor the proper operation of the programs.
2.15 - F. HIGHER EDUCATION
Policy IssuelAccual Situation Effects of Policv and Recoioendatlons
a) Organizacional. In order to reduce che Sitce .1vouni opened, about 40 teachers have been qualLfied andshortage of business management skills. according to che director of the institucton about 95Z of chesejournalist/comaunication (radio) specialists and graduates are ceaching. The insticution can concrlbuce to theinspectors (pedagogical advisors) cthe scope of qualitative improvenenr of the secondary education. Mvounl's main.1vouni. the only higher education instttution in activity should remain tbe training of secondary teachers. Asthe Cosoros was expanded. In 1983184 .Lvouni outLined in (para. Z.15, Section D) on secondary policies, the teacherenrollments were: 77 in teacher training. 16 tn training program for secondary teachers should enroll about 150pedagogical supervision, 23 in business trainees in 1987. Assuming S; repetition rate at ivouni the programmanagement and 16 in journalism. The ceacher should by 1987 have an intake of about 80 teacher tralnees with antraining and business management courses are expected output of 70 teachers p.a. The business management courseon-goiag programs while the educacion should benefit the Government and che private sector but the Lmpact ofsupervision and journalism are one time two-year the graduates would be marginal if they are not supported by efficientprograms. Jr. accountants. clerks and secretaries. Training opportunities need
to be available both, at the jr. and sr. levels. There is a need coestablish sound programs to train junior level staff. Future traineesin management at Itvouni should be recruited primarily from the juniorlevel of servlce personnel with experience. At the end of 19d5 the(35-40) studeat places used for the pedagogical and ,ournalism coursesshould be transferred to teacher trainiag.
b) Secondarv teacher training at higher The ceacher trainLng program In existing facilities enrolls about 120institution. A course to train abouc 30 trainiees. An analysis of facilIties at Mvouni should be made at thesecondary teachers was estabLished in .Mvouni earLiest so that by 1987 Mvouni would have the required facilities to -
1980/81. Until 1983/D4 the institution had operace an enrollment of about 150 teachers trainees and 20 businessdifficulty recruicing candidates since all che management trainees.studencs who passed the SAC were grancedautomacically fellowships abroad. Since thesehave been limited more candidates are applying(about 140 to dace for 1985). The caliber ofstudents is poor since those applying areusually the ones who have Little hope ofobtaining a fellowship abroad.
Policy Issue/Actual Situation Effects of Policy and Recommendations
c) ReLlance on foreign teaching staff at Mvouni The expatriate staff appears to be giving good quality instruction andand developmen: of a long term training strategy to be able to obtaln support mterials/books that enhance thefor Mvouni. The pollcy of having over 90Z of operation of the institution. A long term plan (5 t. 10 years) shouldthe staff being expatriates is a reasonable be prepared listing program . staffing and budgetary implications ofpolicy until qualified and experienced Comorians ethe Institution. Government should prepare a program for the gradualare available. Since their salaries are paid by replacement of expatriate staff. Training needs beyond the BAC leveldonors, it reduces the cost to the Comoros* should be taken lato consideration when preparing such plan. TheGovernmenc needs to develop at earliest * long services of a higher education speciallst should be sought at theterm staffing program for lvousi. earliest.
d) In 1982/83 Gov't stated that the number of In 1985, 85Z of the budget allocated for higher education was forfellowships abroad would be greatly reduced and fellowships. Government is still trying to secure a fellowship forlimited to those paid by bilateral/multilateral every student who completes the BAC- Since the number of BACagencies. Slnce 1983/84 only bigher education graduates is increasing, the cost continues to rise. Government hasfellowships paid by bilateral and multilateral to further review and rationalize the situation and accept that aagencies have been granted. Government La fellowship beyond the BAC is a prI.-:iege. It now takes up to 8 yearscontinuing to pay the fellowships of the for a reciplent of a fellowship abroad to complete a four-yearstudents who had started their training abroad course. Students are not sufflciently prepared. The allocation ofprior to that period. The highest expenditure fellowships should be thoroughly reviewed and fellowships should onlyincurred are for the fellowships abroad where be given to the most deserving students and in accordance to specificthe Comorian Government has to supplement the country needs. Beyond junior secondary the students should receivefellowship by covering the cost of transport and Loans rather than free fellowships. All students going abroad shouldlodging of the students. Although fellowshlp be bonded and asked to repay the fellowship if they do not return toallocations abroad were reduced slightly, the the country. While the shortage of secondary teachers prevails,total expenditures incurred by the Government teacher graduates from Mvouni could have their loans reduced by 2OZhave not declined since generous fellowships (FC for each year they teach. Qualification requirements for fellowships40.000 per month) are now given to the students should be raised and. in cooperation with recipient universlties, thein vouani. The number of fellowships at ?vouni needed standards should be set. For the adminiscracion of fellowshipsincreased from about 45 in 1982/83 to about 107 the Government should establish an interministerial commicteein 1983/8b. At present over 60% of responsible for the review of all awards. All awards should be based
the students going abroad Eail the first year. on manpower identified priority needs. The practice of havingItc is not unknown to have students receiving individual Miniscries allocating fellowships should be halted.fellowship assistance for 6 to 8 years for a Furthermore, Government should limit fellowships to those paid in fullfour-year course. Students receiving by external donors so thac no supplementary government financing isfellowships abroad are noc always controlled required.'rom the Comoros. Often students already abroadreceiveassistance ac the expense of deservingstudents still at hone. Students who fail morechan once are not always asked to return homeand they often change programs. It Is estimatedthac almost 50Z of the students who complecethetr studies abroad fail to return to thecountry. They 4re not bonded and their salaryprospects in the Comoros are unfavorable.
- 24 -
III. AREAS FOR WORLD BANK GROUP INVOLVEMENT
External Assitance to the Sector
3.01 Besides the World Bank Group (WBG) assitance to educationdescribed below the Comoros are receiving support from several otherdonors. The main donor is France, which in addition to the generalbudgetary support (para. 2.12), is assisting the MIE, secondary and highereducation with teaching and advisory staff, while providing textbooks forthe primary level. It is expected that France's leading role in the sectorwill be maintained. Saudi Arabia is funding the construction of anadministrative block at Mvouni, primary classrooms and providing technicalassistance in the teaching of Arabic; Belgium and Canada are providingsecondary teachers and school equipment; Unicef is helping with schoolgardens and pre-school programs; Holland is assisting women organizations;and the African Development Bank is assisting with the construction of 54primary classrooms and the upgrading/renovation of 13 secondary schools.Given the relatively large number of donors supporting the development ofthe education sector, it is important that ways be devised by theGovernment to improve the coordination of external aid for education. Onepractical way would be for the Government to use this Sector Memorandum(once it has been finalized takirig into account the Government's comments)as background material for the next Donors' Roundtable (expected to takeplace later this year).
W4orld Bank Group (WdBG) Assistance to the Sector
3.02 Tne WBG has supported Comoros' education sector throughone education project, emphasizing teacher training, agriculture andhealth training and the supply of educational -aterials, primarilytextbooks for primary schools. The First Education Project (Credit1195-COML for US$6.0 million equivalent) was approved on December 15, 198'and became effective on July 30, 1982. Implementation of the project,despite earlier delavs is proceeding in a satisfactorv manner due to goodproject administration, backed by an experienced team of technicalspecialists. 3earing major unforeseen difficulties it anpears that theproject will be comDleted on schedule.
Sector Support Strategy
3.03 Future WBG support should be geared to meeting the most urgentpriorities bv assisting the Government in: (a) improving the policvdevelopment, planning and management of the education system; (b)establishing specific programs for middle level adninistration and
technical personnel; and (c) upgrading the quality of education (para.3.04). It is also crucial that the on-going dialogue between theGovernment and the WBG regarding the financing of education be continuedemphasizing the need to: (a) control recurrent expenditures to a levelconsistent with the country's financial capacity; (b) allocate resources in
- 25 -
a more efficient and equitable manner; (c) provide secondary vocational andhigher education solely in accordance with the manpower needs; (d) avoidwastage of resources through the provision of unproductive and unecessaryscholarships for students in higher education; and (e) look for theparticipation of the communities and recipients in the financing ofeducation, in particular at the pre-primary level.
3.04 During a reconnaissance mission in October 1984, WBG reviewed thelist of sector priorities prepared for the July 1984 Donor's Conference anddiscussed potential future support to the sector. Potential activities fora second education project, tentatively scheduled for appraisal in FY86are: support to MEN to improve its planning and administrative capacity;assistance to vocational/technical programs; teacher in-service training;qualitative input to schools (books, chalk, boards); and organization of abusiness school to train secretaries, and junior accountants.
Sector Work Priorities
3.05 Fut-xre sector work should include studies which would focus on:(a) formulation and implementation of appropriate policies andinstitutional building in educational planning and administration; (b)strategies and programs for secondary education; (c) analysis of costrecovery schemes; and (d) review of vocational/technical and highereducation programs. Future Bank Group sector work should include a studyof the higher education and fellowships programs and an assessment on theprogress of the PEN in the implementation of appropriate policies.
-26 - ANNEX I
Page 1 of 12COMOROS
EDUCATION SECTOR MEMORANDUMTHE EDUCATION AND TRAINING SYSTEM
1. Structure of Education. The formal education system of theComoros Islands consists of two years of pre-school education in Koranicschools, six years of primary education, four years of lower secondaryeducation (college rural), and three years of upper secondary education.Upper secondary education is provided in lycees and in specializedoccupationally oriented schools, most of which have recently beenestablished or are in the process of being established. The Governmentalso recently established a national primary teacher training college and apost-secondary institution to train teachers for secondary schools,education inspectors and business managers. With this minor exception anhigher education is provided overseas, with a plurality of students inFrance and Algeria. Charts t and 2 show the structure of the formaleducation system, and the education pyramid, respectively.
2. Administration and Planning. Until 1983 the Government of eachisland (gouvernorate) was responsible for primary and secondary educationincluding hiring, paying, and supervising teachers. Since January 1984,all the above functions have been centralized in the capital and arehandled by the Ministry of National Education (MEN). The MEN isresponsible for overall organization of the education system, and forcurriculum, examinations, quality control, and planning, and is in directcontrol of teacher training and higher education. The Xinistries ofProduction and Health control agriculture and health education,respectively, although the ZEN is responsible for examinations and award ofcertificates for the students of their schools. The secretariat of theCivil Service also organizes professional training for civil servants.They administer two centers to train mechanics, welders, masons andcarpenters. The first located in Ouani, in Anjouan was only able to trainabout 920 trr-nees prior ot its being closed during the 1977 turmoils. Ithas not reopened. The second, located in Moroni, lacks equipment, teachersand operates in temporarv quarters. Its main objective is to train officeemployees but its activities have been limited to the training of typists.
3. The present organizational structure of the MEN (Chart 3) isexcessively centralized around the Minister's office. The ,MEN includes thefollowing directions; General Administration and Finance, Pre-school andPrimary Education; an office responsible for planning, scholarships,statistics; offices responsible for examinations of the primary and
-27- ANNEX IPage 2 of 12
secondary school systems; a National Institute of Education (INE)responsible for curriculum development research, teacher in-servicetraining and distance teaching; an office for the administration ofeducation projects, a National Primary Teacher Training College (NPTTC) andthe Higher Education Institution, Mvouni.
4. The MEN is gradually filling its administrative posts and hasstaffed the planning office with a recent graduate but, generally alldirections of MEN are understaffed and ill-equipped. The management of theentire MEN rests on a few persons. Reliable records on enrollments,salaries, policies are greatly lacking with the result that the sector isadministered largely at the whim of a few officials rather than followingspecific national policies. Urgently needed is the strengthening of theMEN management, planning, and supervisory capacity (para. 2.15 A).
5. Literacy Rate. The 1980 population census indicates that 51% ofadult Comorians were identified as illiterate. Considering that thepopulation growth of 3% p.a. exceeds the growth in literacy estimated atabout 1.1% p.a., unless dramatic attention is given to basic literacy thenumber of illiterates will continue to grow. In fact, in 1983 it isestimated that 23,235 children were not attending school and likely to jointhe ranks of illiterates. Added to that is the high drop-out rate duringthe first year of school (16%) when another 2,200 students will drop-outand presumably join the ranks of illiterates.
6. Koranic Schools. The primary system in Comoros is wellestablished with about 19,139 attending Koranic schools in 1984 (70% of agegroup 4 and 5). The attendance is almost a pre-requisite to entry inprimary school. Teaching is done in Arabic and about 600 teachers areemployed and paid by the Government. The pedagogical methods being used inthese pre-primary schools appear to be poor (para. 2.15 B).
Primary Education
7. General. In 1983-84, about 61,905 children were enrolled (42.6%girls, which compares favorably with other countries in the region) in theprimary school system in the Comoros Islands. This would correspond to76.6% of the estimated population aged 6 to 11, but, in fact, it includesabout 8,050 (13%) overaged children. Percentage attendance has beenincreasing yearly since 1972-73, when attendance was only about 25% of theage group. By island, the age group attendance, including overage, in 1984was Grand Comore 76.9Z, Anjouan 71.7% and N4oheli 85Z. The same year theteacher pupil ratio by island was: Grand Comore 1:43, Anjouan 1:32, andMoheli 1:34 for an overall average of 1:39.5 (the region average in 1982was 1:43) Less than 40% of all children entering the system complete the
- 28 -
ANNES I
Page 3 of 12
sixth grade. These participation and flow rates are high in comparisonwith other African countries but the quality of primary education and theachievement level of students are low (para. 2.15 C). The school relatedcauses of low achievement appear to be a lack of adequate facilities,untrained and poorly motivated teachers, and shortages of educationmaterials and textbooks. Another cause may be the very poor nutrition andhealth of children which affects their learning capacity.
8. Physical Facilities. In 1983-84, 831 classrooms existed (toserve 2,016 student groups) of which 46% consisted of poor mud and thatchstructures. The MEN estimated that in 1983-84, 172 of the primary childrenattend school on triple shifts (less than two hours of class per day) andthe rest attend on double shifts (about 2.5 hours of class per day).Following the UNESCO school mapping study completed in 1981, it wasestimated by the Government that classroom needs, to allow for double shiftfor all groups, would exceed three hundred by 1990. The AfricanDevelopment Bank (AfDB) and the Saudi Fund to reduce overcrowding haveagreed to construct 57 and 15 classrooms, respectively or a total of 72.The majority of the existing classrooms lack adequate chalkboards and thereare seven pupils to every student seat. The worst situation is found inIoheli.
9. Primary School Teachers. The national average pupil teacherratio (TPR) in 1983-84 was 39.5:1. This ratio is acceptable given theComorost constrained fiscal situation and could be increased co about 45:1with probably no effect on student achievement. About 56% of all teachershave only a primary school certificate; an additional 23% have a lowersecondary school certificate; and only 21% are fully qualified teachers.The untrained teachers utilize very poor teaching methods and many lackbasic knowledge of the French language and of mathematics. At the sametime many officially qualified teachers graduated from inadequate teachertraining courses in the lycees. In 1984, the proportion of unqualifiedteachers by island was as follows: Grande Comore 82%, Anjouan 682, andMoheli 86%.
10. In 1963-84, in spite of the fact that about 83% of the classroomswere used for double or triple shift, the teachers taught only one classwith the result that the majority of the teachers did not teach the fullZ2.5 hours required at the primary level. Overall estimates for trainedteachers for the next ten years using 1:40, 1:45 and 1:50 ratios arecontained in Annex II, Table 7. Assuming a growth of primary schoolenrollment limited to the population growth (3 p.a.) and increasing thepupil teacher ratio to 45:1 with a 4% attrition and with an annual outputof about 90 pre-service and 100 in-service new teachers graduating yearly,it would require about 10 years to arrive at a full complement of trainedprimary teachers. In 1982, the MEN with World Bank assistance initiated an
- 29 -
ANNEX IPage 4 of 12
in-service program utilizing a combination of distance teaching,correspondence and vacation-time courses to upgrade untrained primaryschool teachers. This program will upgrade about 1,000 teachers over threeyears. These teachers will have to pass an examination to becomecertified. At the end of the second year, the program certified 58teachers and a second examination took place in 1984 with MEN expecting toupgrade about 200-300 teachers by 1986.
11. Curriculum and Textbooks. The language of instruction at theprimary level is French. During the first four years of school, emphasisis placed on language and mathematics with social studies and agricultureadded in the upper grades. The French books have been adapted to themilieu with French assistance and are now being supplied to the schools(one for every two pupils) under projects with external financing fromFrance and the World Bank. The World Bank financed project is alsosupplying mathematics books and printing locally, social studies andagriculture booklets and teachers' guides. It is expected that the teacherin-service program now underway combined with the supply of textbooks willimprove the learning achievement and efficiency in primary education. But,these positive effects will remain marginal until a higher percentage ofteachers are qualified.
12. From the 1983-84 flow data on primary students (averagerepetition rate of 29.5%, and dropout rare of 16%), it can be observed thatit takes a pupil in Comoros 8.3 years to complete 6 years of primaryeducation. Using the above rates and projecting a cohort of 1,000students, it is estimated that about 37.3% of the cohort who enter gradeone ever graduate. With the actual rates it would take 3,105 pupil yearsto graduate 373 pupils when in fact they would 'ave required withoutrepetition only 2,238 pupil years. Using the present rates 868 pupil yearsin excess are used to graduate 373 pupils. In addition, about 3,006 pupilyears are used by dropouts with the result that a total of about 3,873pupil years are paid by the Government with little evidence of results.The system is very inefficient and for instance, if the repetition ratewere reduced to about 10 and the drop-out rate to 8%, the system wouldgraduate 60.b% or b06 pupils, an increase of 231 graduates (Annex II, Table4).
13. National Institute of Education (INE). This institution wasestablished in 1981 with French TA and facilities and equipment wereprovided by the African Development Bank. IiNE is responsible for theadaptation of programs to the local mili"2u, the distance teaching programand in-service program for primary unqualified teachers. This institutionin part duplicates the work of the Directions of Primary and Secondary
- 30 -
ANNEX IPage 5 of 12
Education and the integration of part of its staff to these directionswould reduce costs, reduce duplication and improve administrativeefficiency in the sector.
Secondaryv General Education
14. General. Enrollment in lower secondary education (collegerural) of 15,072 students in 1983184 was equivalent to a high 41.3Z of theschool age population (ages 12 to 15 inclusively). This percentage droppedin 1981 as the MEN Admitted only 2,300 students to the colleges ruraux,compared to 3,500 in 1980. But that trend was short lived because in1983/84 eight uew arabic colleges were being established and the collegeIntake was up to 4,409. Secondary enrollmaers grew at an average of 7.5Zfrom 1972-73 to 1980-81 with girl participation experiencing a smallincrease from 35X to 38%. But during the last four years, theseenrollments grew at 14X in junior secondary schools and 32% in seniorsecondary scnools. Such rates are too high and are seriously affecting thequality and cost of this level of education. Largely due to the fact thatalmost all the teachers of the first three years are unqualified, theinstructional quality is poor with a high promotion rate averaging 72%.During these three years, the repetition rate was about 16Z and drop-outsaveraged 12Z, while in the fourth and last year of junior secondary,promotion to senior secondary averaged 41Z with repetition being 25% anddrop-out 34%. It takes on average 7.35 studeat years for a student tocomplete the four years of junior secondary resulting in an efficiency rateof only 53Z. The student-teacher ratio of 34:1 is within acceptablelimits. Instruction usually takes place in faclities which were designedas community centers. While these facilities are sturdy, many buildingsare unfinished and lack doors, windows, and in some cases, finishedfloors. Government has initiated the teaching of practical subjectswoodwork, agriculture and hone-economics in eleven secoadary schools andwith the assistance of the AfDB is building workshops. To date, theworkshops are inadequately supplied with equipment and no ?ocal teachersare qualified to teach these subjects. In the few schools whereexpatriates teachers have been recruited, the practical programs are notfunctioning well due to a shortage of recurrent funds to operate theworkshops. Basically, most of the practical subjects are established inname only and largely only theoretical teaching occurs. This puts incuestion such programs which entail high material expenditures and placethe student unit cost at about FC 218,562 (US$452). Such expenditures arehard to justify ir relation to the low quality output of theseinstitutions.
15. About 3,068 students, equivalent to 12.7% of children aged 16 to18, were enrolled in upper secondary education (lycee) in 1983-84. Thisenrollment ratio is high in comparison to other countries in Africa. In
-31- ANNEK IPage 6 of 12
1982/83 upper secondary promotion rates averaged 77Z during the first twoyears and 40X in the final year. Repetition rates averaged 17% the firsttwo years and a high 25% the third year. Government finances 8.23 yearsinstead of 3 per graduate. Lycee students constitute a privileged class inthe Comoros and until 1980 they all received ample scholarships, includingfutl boarding. Those who passed the baccalaureate examination wereguaranteed overseas scholarships after completing one year of compulsoryteaching service. In 1982, the MEN eliminated boarding facilities andprovided scholarships only to those students who attended school in anisland other than their home island or traveled long distances within theirisland.
16. In 1984, about 1,425 students were enrolled in the first year ofsenior secondary education, compared to about 500 in 1978; thus withoutcontrol of intake, enrollments would shortly more than triple and theoutput of general secondary graduates would be far in excess of theavailable jobs, and the recurrent cost implications would be serious. Inrecognition of this problem, the MEN restricted the number of first yearentrants in 1981 to 950, but this control was not continued. The majorproblem with the lycees is the poor quality of the system, its highrepetition rate and less than 30Z of the students being able to pass thefinal examination. Due to limited alternative training opportunities inComoros most students try to attend lycfes.
17. Secondary School Teachers. The majority of the 377 lowersecondary school teachers are untrained with 46% teaching as part of atwo-year period of national service before being awarded overseasscholarships. Largely because of the high number of unqualified teachersat the junior secondary level, almost all the teacher positions of thefirst three years are staffed by unqualified national service persons withthe result that the quality of education has been seriously affected. In1980, MEN established a teacher training college for lower secondaryteachers at Xouvni in the Grande Comore Island. This school now enrolLsabout 60 students in a two-year course to qualify them to teach in lowersecondary schools. At the upper secondary level the teacher racio is avery low 1:19 with 119 out of 160 teachers or 75% being expatriates paidthrough French, Belgian, Arab League, and other technical assistanceprograms. All Comorian teachers at this level are qualified with overseastraining.
Vocational/Technical and Professional Training
18. Vocational technical programs under the supervision of theDirector of Secondary Educatioa are not receiving the proper attentionregarding planning and programming, and are underfunded. Attention givento this type of training has been marginal and a few specialized schoolshave been onLy recently established. The World Bank's First EducationProject is replacing the unsuitable facilities and equipment at the Health,
-32- ANNX IPage 7 of 12
Agriculture and Teacher Training Institutions with the last two nowoperating in temporary quarters. In 1983-84, these institutions'enrollments were health 68, teacher training 90, business school 180(including part-time students), and Voc./Tech. 120, for a total of 458rrainees. According to the World Bank/UNESCO Cooperative Program report ofFebruary, 1985, the number of trainees is sufficient but the quality of thetraining programs, facilities and equipment need to be urgently upgraded.They are also in dire need of additional spectalized teachers. Thevocational school in Anjouan, opened with assistance from the ILO, wasclosed during the late 1970's due to national turmoil and never reopened.Graduates of these schools in many cases have not acquired the skills theywere to have mastered since most of their learning was theoretical.
Training of Low and Middle Level Manpower
19. The Comoros has an excess of secondary school graduates and atthe same tine ic lacks appropriately trained personnel in health,agriculture, commerce, industry, and public administration, as describedbelow.
20. Agriculture Sector. With FAO and UNDP assistance the Governmentestablished in 1980, the framework of a system of rural extension andservices. The CEFADER, with its CADERs provides the structure throughwhich rural develooment aztivities can be directed. Nine CADERs have beenestablished so far, with the construction of two more, envisaged under the!DA financed Rural Services Project. The entire rural population will becovered by the CADER network. Each CADER will be staffed with 10 fieldextension agents, one livestock assistant, one forestry/land conservationassistant and 2-3 home-economists. There are at present approximately 60extension agents, most of whom have little formal training and low skilllevels. There will be a total of about 60 technicians in research,forestry, livestock production, and fisheries. External donor assistanceis being provided to expand production in a number of differentsub-sectors. A key to successful imDlenentation of these programs will bethe provision of trained extension workers as well as higher leveladministrative and managerial personnel. Numerous agencies are assistingin higher level scholarships, and regular monthly training sessions arebeing provided through the Rural Sexvice Project, which is also financingoverseas training for veterinary and livestock assistants. However,provision for the trainiag of field level extension workers will only beginduring 1985 when the agricultural school is ooened.
21. As part of the Government's agriculture development strategy, anagricultural training center financed under the First Education Project isbeing developed in Moheli, which has the most fertile land of the threeislands and is relatively underpopulated. The center would have a capacityof 40 trainees and would have an output of 20 extension agents per year.Because of Moheli's relative isolation, the management and staffing of this
- 33 -
ANNE IPage 8 of 12
center will be difficult iu the short run; however it would meet long termneeds for all field extension workers and will also provide in-servicetraining to upgrade the skills of the more motivated existing staff. It isexpected to open in September 1985 with an intake of 20 students, 10 forinitial training and 10 for in-service training. Teaching assistance islikely to be provided by Moroccan aid, with CEFADER. staff providing somespecialized teaching. The Agriculture Sector Memorandum made the followinganalysis of staff training requirements:
Existing Existing Staff 'Net'Assigned Summary of Not Assigned Incremental
22. A list of all steps required for training the staff for theMinistry of Agriculture was provided as one of the conditions of projecteffectiveness of the IDA Rural Development Project; however, with theopening of new CADERs, and development of several donor-financed programs,the situation is very fluid. The training/extension division of theCEFADER is preparing personnel files for all staff members detailing theirformal qualifications and experience. This should help to clarify theexisting situation and training needs. What is clear, however, is that inthe Rural Services network, where there are at present twice as manyexpatriates as Comorian graduates, despite the large number of staff on thepayroll there is still a very severe shortage of adequately trained staffat all levels, while staff supervision is very poor. rTere is,furthermore, no clearly established system of selection or promotion basedon merit, and no effective uniform salary structure.
Health Sector
23. In 1983 chere were about 600 people working in the Comoros'government health services. Only about 120 of them have received formalprofessional training, either at medical and nursing schools abroad, or atthe National Health School (2HS). This nuamber includes about fifteenComorian and twenty expatriate doctors and dentists. All the Comorians arein Moroni and Mutsaiudu; peripheral facilities are staffed by UN volunteersand Laval University doctors. The trained medical and paramedical staffare outnumbered by the roughly 480 workers with little or no formaltraining who have a confusing array of titles -nurse, health technician,auxiliary nurse, auxiliary midwife, nurse aide, itinerant worker, etc.-ar.d a variety of backgrounds. The majority of the health posts are staffed
- 34 -
ANNEX IPage 9 of 12
by such workers, most of whom can perform only a small number of tasks. Inthe large health facilities, the few trained personnel often provide directservices instead of supervising and managing the lower level staff. TheNHS, which was established in 1980, provides three-year courses for nursesand technicians, and in-service training for all paramedical staff. About30 nurses and technicians graduate annually. When the new NES building,which is being financed under the IDA First Education Project, is completedin 1985, a one-year course for nursing assistance will be added. To date,most of the instructors have been furnished by WHO, but there are severalfuture Comorian instructors now in training abroad. The NES trainingprograms need to be better adapted to the needs of the Comoros' healthsystem: there is iusufficient practical training, and the programs andcurricula need to be more related to the health workers' actualresponsibilities and skill requirements. There are about 40 Comorians nowreceiving medical, nursing, and related training abroad. In the past, veryfew such students have returned to Comoros. The Government is nowexploring ways to encourage their return.
Transport
24. The institutional framework is generally weak, stemming mainlyfrom a severe shortage of trained and educated local personnel and criticaldependence in the secror oa external technical assistance. The StateSecretariate responsible for the marine and air transport has only onesenior position and the roads department has only two Comorian engineersthus, transport is heavily dependent upon expatriate assistance. Offices,such as the Office of the National Ports, have been established byGovernment but are inoperative because of rheir lack of personnel withmanagement and maintenance capabilities. As stated in the Transport SectorMemorandum dated June 13, 1983, there is virtually no Comorian staffqualified to scrucinize various studies carried out for a number ofprojects. But to make things worse there is a lack of potential localcounterparts which could gain from on-the-job training from the fewexpatriates used to operate the transport system. To overcome the seriousbottleneck, the Transport Sector Memorandum recommends that a long-termsystematic training program of Comorian staff under technical assistanceaid programs be developed at the earliest in that sector. The trainingprogram should cover aostly the needed basic expertise: civi1 andmechanical engineering, transport economists, financial analysts, seniorand junior accountants, maintenance and support personnel.
Civil Service
25. The civil service employs about 6,000 Comorians and as ideatifiedin a 1983 report by FAC (Mrs. Besse and Mr Martory) the training needs inmanagement, technical specialities and of the iatermediate level staff
- 35 -
ANNEX IPage 10 of 12
requires immediate attention if the performance of the civil service andsmall private sector is to improve. They identified the need to organizean institution to train mid-level staff for the hotel industry, banks,public finance, transport, island government administrations andagricultural projects. They indicated that particular attention should begiven to the training of: (a) secretarial, clerical, junior accountant andsupport staff; (b) existing managers through upgrading courses inmanagement; and (c) planning and macro-economic training of the seniorgovernment officials. The training programs of the managers could beorganized at earliest using existing facilities and institutions but tobetter respond to the major shortages of mid-level staff and upgrading ofthe existing one, Government should consider establishing abusiness/secretarial/jr. accountant school. This school shouldsimultaneously train personnel for all Government Ministries and theprivate sector. The school should be placed under the supervision of amanagement board composed of representatives from the key ministriesCFinance, Education, Planning) and private sector representatives. Such aninstitution should preferably be under the administration of anorganization such as the Caisse Centrale or Chamber of Commerce which couldtap resources from the private industry and educational institutions. Theabove ttaining needs were confirmed as a priority during the Donors'Conference held in Moroni July 1984. The Bank group supports thisinitiative.
26. The organization of a business school could respond to the longterm training needs of mid-level staff but until that objective is realizediimmediate efforts should be initiated to upgrade the present staffparticularly those dealing with planning, administrative and financialtasks. The Government should consider employing training consultants tobegin at the earliest the training of the existing staff. The cousultantswould review -with the Ministries involved the mid-level staff and skillneeds on the basis of the couatry's annual planning and budget cycle. Theconsultants would prepare related training programs divided in three-monthslots to give to the trainees the required skills to perform their dutiesfor that period. The organization of the program would be as follows: oneor two month prior to the yearly cycle consultants would during one/twoweeks teach the skills required co perform the tasks for the next quarter.Once the courses are completed only one full time training consultant wouldremain to assist the trainees. The trainees would prepare the quarter'sbudget or planning work for their own Ministry or Department and the lastweek of that period they would spend one week reviewing/improving/finalizing their work with the trainers. They would then be trained forthe activities of the next quarter. Occasionally one or two day seminarswould be held by the consultant or senior Comorian officials when specialproblems would occur. This cycle would continue for two years and at theend of the program the trainees would have to pass an exam and obtain a
- 36 -
ANNEX IPage 11 of 12
certificate. This training approach could greatly improve the mid-levelskills in all the Ministries, assist with the standardization of budget andplanning activities and finally could be used to eliminate the employeesunable to perform the required tasks. This program would also giveguidance to the proposed business school on what skills and programs needto be taught.
27. Since insufficient details on the actual skills needed by thecivil servants are avaLlable at this time, the WBG in a PPF for theproposed Technical Assistance project will review the training andupgrading needs of that staff. This study should be undertaken bymid-1985. Also a Unesco team reviewed the vocational/technical andbusiness training needs early 1985. The proposed on-the- ob civil servicetraining program would be organized on the basis of the above studies.
Higher Education
28. In 1983-84, 168 students in higher education were studying abroadmany of whom might not be returning to the Comoros because of the lowsalaries and the ledck of opportunities (Annex II, Table 10). It isestimated by MEN *nat over 60% of the trainees fail their first year offellowship abroad due to the poor foundation they have received. The weaksystem is further demonstrated by the requirement that at la Raunlonstudents take two catch-up years prior to being able to proceed withfurther studies. The dilemma of the poor quality of the secondary systemdemonstrates that Comoros is getting a very low return for the freesecondary education given and that tighter entrance and quality coatrol arerequired. In 1983, about 89 students were receiving bilateral assistanceto study in Europe while the Government of Comoros was paying the lodgingand transport cost for about 57 students studying in African countries.This high expense is considered a high drain on the national treasury. Asstated in paragraph 18 of this annex. the Government established at Mouvnia College to train nationally about 60 teachers for the secondary level.This institution has also added courses to train 30 educationinspectors/advisors, 16 journalists and 23 management specialists,enrolling in 1983-84, 142 students. Mbuvni appears to be a stop-gapsituation for the graduates from the Lycees who were unable to obtainfellowships abroad. These trainees receive a fellowship of 40,000 FC permonth and Lhe Government has thus greatly increased higher educationprograms and costs without sufficient analysis of manpower shortages. At.Yvouni they have established training programs to respond to an identifiedneeds and once these needs are satisfied they are to replace these coursesby needed ones. The training of about 30 inspectors/advisors and 16journalists/radio specialists is being done using that principle. AlthoughMvouni claims to be working on a modular system answering specific needs,
- 37 -
ANNEX IPage 12 of 12
it does not have a long-term training plan. It appears that many decisionsare made on an ad-hoc manner. It also appears that Government plans toexpand Mvouni to accommodate the lycee students who do not obtainfellowships abroad. Such a move would further increase costs unjustifiablyand badly affect the instructional quality. The country should notguarantee automatic higher education to the priviledged group who reachesthe lycee. Students at Mvouni should be given loans rather than freefellowships (para. 2.15 F) and that it should concentrate preferably, andas a priority, in the training secondary teachers.
0
-38 - XNNE II
Table ICODOROS
EDUCAIIDN SECTOR MEMHRANDUXSUMIAKY or 1S83/84 ENROLIE.SIS
Koranic
Male 8,613Female 10,526Total 19,139
Primary
Grade L l/CP1 Z/CP2 3/CE1 4/CE2 5/CM1 6/CM2 Tocal 1
11 Ixcluding par:-t'3e students2/ Distributcon bv sex available only for teacher training.3/ Wodular course offered only once.
- 39 -
ANNEX IITable 2
COOOROS
EDUCATION SECT5' MEMORANDUM
RECURRENT BUDGET OF THE MINISTRY OF EDUCATION, 1984/1985
(IN MILLION FC)
1984 1985Level of Education (Final (Preliminary
Budget) Budget)
Education Adm. 173.5 182.1
Higher 391.5 425.2of which fellowships abroad (300.0) (285.0)
Voc./Tech. Education 38.7 41.3
Secondary (lower and upper) 503.4 525.3
Primary and Koraaic I/ 679.0 931.5of which: Grande Comore (282.0) (446.0)
Anjouan (325.9) (425.0)Moh4li (71.1) (60.5)
1_ No updated data are available on expenditures on Koranic schools. For1985 on the basis of partial information, these have been tentativelyestimated at about 17% of total expenditures for this level ofeducation.
Source: Ministry of Economy and Finance
-40- ANMEX IITable 3
COHOROSEDUCATION SECTOR HEZORANDUH
ALTZRNATIVI PROJECTIONS OF EXPENDITURESOF THE MINISTRY OF EDUCATION - 1990
(In Million FC at 1985 prices)
1985 1/ 1990
Adjusced No Basic IncorporatingProlitdinary Change in PoLicy
Level of Education Budget Pollcies Racoumandatlonu
1I Budget of the MUE adjuseed to exclude feLlowshLps but include rentalexpenditures for foreign teachers at the secondary Level.
21 Assumes no change in relative prices and also assumes chat reachers'salaries maintain their purchasing value at the different levels ofqualification. The numbers of qualified teachers are the same for bothalternacives and have been projected on the basis of availability oftraining programs and appropriace actrition rates. The numbers ofunqualified teachers are obtained as the balance of requirementsdetermined by the enroLlments and studenc-teacher ratios assumed.Other assumptions underlying expenditure projections are as follows:
IncorooratinE PolievLevel of Education No Basic Change in Policies Recommendations
Administraction Crows at the same rate as Crows at 5t per year.enrollments.
Higher Education Any reducions in Scholarships abroad f-nancedscholarships abroad are by Governmenc are halced andcompensated by increases in those in the councr:ythose in the country. reduced. Savings from the
latter cover some increasesin enrollments in 1vouni.
Voc./Tech. Education Crows at trend rate of 2: 100% increase from its 1985p.a. level.
Secondary Education Enrollments continue to grow Enrollments grow at 1: p.a.:at 16% p.a. and present studenc-ceacher ractio isstudent-teacher ratio of 34:1 35:1; education material peris maintained. Education studenc are FC 4.000.materials per studentmaintain their 1985 level ofFC 1,525.
Primary Education Enrollments grow at 3% p.a.; Enrollments grow at 3: a.Student-teacher ratio is student-teacher ratiomaintained at *O:1; education increases to .5:1;-materials are also maintained educacional nacerials are FCat FC 204 per scudent. 1,000 per student.
Koranic Educat'on Grows ac 3: p.a. and is Grows at 3% p.a. buc istotally paid by the increasingly financed by theGovernment. communitv (50% in 1990).
lICliAlDY I WNiIS PIWJ lflIIflflVL'321 MWWI Illlli ! EMi."!
blullIg m pday mjactLaw o tt anlla Itfr a ail.i 5 imi. Alyulam ldtuAats a1 nacest of 1,01 a41$ aalg 1talma gentian, nyatlgLna ad Awn nr t au do aps'^ pwf - dfSemy.
inu mIt 1I*AWm m W M WIUI HIM"WIin tPII*F M?IIW. AIllS 19111/84 IU2tTITIhE ,11 Mier,it) 0 213 JITIM En N 1DI Si mTmIW ItD 901t fL l 31s
lien! hv:Lj II-mts ft'a b ru Iknjrsasts Pnaa k- te!!W4 gp ?-mad _ -m D
I. .4443 i%Wir , ul1tl' I-ysure gail by (a Mastarn 6111 51 53 5173 m32. n, o udor f asr.e3tatst pt(Oitaa4 urrr 13 yrur 11) 450 4US 4t2. Nr-cfL 1 a ;of 01 nlakIt ei .tt.lif CJAI.a .tilmA .a gtFAIsttu V. 1 45.(1 43.51 49.8 Wi.ll
4. Mmidor of 3i43ll-ywri, Slf01 (fr gjr.AIa' 16.4 12.3 11.3 10.4 9.1S. Ilulasthijsial ngutl - I ysurs pjr tirAlI ul ywira (6) ia tyrl. 2.1i MI 2A3 3.89 1.73 3.53 0.6. T.,u1l *t,-r nl ImjJI--ysurs ist by gnalfultea IS 3A61 * 31354 3317 -I. Avvr.sjv immr of yaara toil by d amjr.idtt lat %6,. mlari 8.1 7.5 . 7.1 6.7 6.711. li IIIkOr tat ,US trsiU hWa by nrahluat. &A1 MS Sl 7'02 49. Knvrtt.sWu of tAcolus yrare tril by gr.blat 22.4t 22.Zt. 19.11 1i52S 21.12
111. I161i apd.ir of 41,,(Fb,iita 1ast (I.3 cwl,t bill Y'M 324 SW 34It. laul ia.attr of 3eagJ 1-ysu .Ail by .Ina tz VIA 221 20s 1% Isal1. AV'.ag.. mad 1am LA yurs spot a al Sibyit aI .. ,yts e 4.1 b l 31 3.711. IK,ntll.igt *11 *'ta.utm yaUaa saul lay Awlt alt. 11.12 71. ' 90.3 LAS 78.1
II.! Law,ioa trIll .133 at Itashrlu:\m, witllua l \ i tilI. * t m ItItem rt. tn La .S lil. t1. Au iNt? .J-,ve LIst tt pr%,l rate, it..
iu,-0lf11114 III II.? ala31.mI Imtoh- al 1133lil ya'-rh, it tL' 'rail.1. Iirtt aI Itttj' 11 tri lam mrt.o lay jiabltit- (Isalao. ttf
ra-jat ft let). It. t i.ftrip .1 1f ( .DIs ,staI,3l \-! tla at- au l [Al.w pn\l la t' (tol 1l s iil iwtiilt II9~~~~~~~~
I P 5 .4~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~.
- 42 -
ANNEX IITable 5Page 1 of 3
COMOROS
EDUCATION SECTOR MEMORANDUM
ENROLLMENT PROJECTIONS - PRIMARY SCHOOLS
Note:
Alternative I Assumes a constant efficiency rate (t ratio of numberof graduates to number of entrants in a cohort) of 38Z(present) and an enrollment growth of 3% p.a. whichshould halt illiteracy increase.
Alternative II Assumes an increasing efficiency rate which wouldattain 100% by 1996 and enrollment growth of 3% p.a.Under this alternative the number of graduates by 1994would be 14,161 as compared to only 4,625 under thefirst alternative.
Alternative III Assumes an increasing efficiency rate attaining 100% by2006 and an enrollment growth of 1% p.a. Under thisalternative and notwithstanding the lower growth inenrollment, the number of graduates by 1994 would bemore than double that under the first alternative:9,380 as compared with 4,625. Therefore, the firstpriority for the Government is to improve the qualityof education.
Annual growth factor for Grade 1: 1.030 constant and time horizon for 100%efficiency improvement: 10 years, after 1986.
Efficiency for Year '84 is 0.379 and the # of Student-Years/Grad. are 15.82Efficiency for Year '85 remains constantEfficiency for Year '86 is 0.496 and the # of Student-Years/Grad. are 12.09Efficiency for Year '87 is 0.593 and the # of Student-Years/Grad. are 10.11Efficiency for Year '88 is 0.672 and the # of Student-Years/Grad. are 8.92Efficiency for Year '89 is 0.737 and the $ of Student-Years/Grad. are8.140001Efficiency for Year '90 is 0.789 and the # ot Student-Years/Grad. are 7.6Efficiency for Year '91 is 0.830 and the Y of Student-Years/Grad. are 7.22Efficiency for Year '92 is 0.864 and the # of Student-Years/Grad. are 6.94Efficiency for Year '93 is 0.891 and the # of Student-Years/Grad. are 6.73
- 44 -
ANNEX IITable 5Page-3 of 3
COMOROS
EDUCAIION SECTOR ,M0ORANDUM
ENROLLNENT PROJECTIONS - PRrMARY SCHOOLS
III. Improving Efficiency with Present Enrollment Growth
Annual growth factor 'or Grade 1: 1.010 constant and time horizon for 1002efficiency improvement: 20 years, after 1986.
Efficiency for Year '84 is 0.379 and the # of Stadent-Years/Grad. are 15.82Efficiency for Year '85 remains constantEfficiency for Year '86 is 0.437 and the # of Student-Years/Grad. are 13.73Efficiency for Year '87 is 0.490 and the " of Student-Years/Grad. are 12.23Efficiency for Year '88 is 0.539 and the # of Student-Years/Grad. are 11.13Efficiency for Year '89 is 0.583 and the # of Student-Years/Grad. are 10.28Efficiency for Year '90 is 0.624 and the -t of Student-Years/Grad. are 9.62Efficiency for Year '91 is 0.660 and the # of Student-Years/Grad. are 9.08Efficiency for Year '92 is 0.693 and the # of Student-Years/Grad. are8.649999Efficiency for Year '93 is 0.723 and the # of Student-Years/Grad. are 8.29
_ 45 -
ANNEX IITable 6
COMOROS
EDUCAIION SECTOR M&MORANDUM
PRIMARY TEACHRS DISTRIBUTION BY QUALIFICATION
1981/82 1982/83 1983/84 1984/85Island No. z No. 2 No. Z No. z
Grande Comore 738 100.0 818 100.0 796 100.0 813 100.0
I/ 'roaleswLr-5luil)[I ritio of 1:40.2; IniilI elaS o asstiiiniiig a 3% growtlh In unrolhiiunts pal.3 4% aLLrLLiotidi/ Out:put NUtt;OI111 'luaCIhur 'Iarii njl1U Coil ege
5/ aliseI on1 avUer;gC (Ita;f iud uteaCIer uIlary of l'C533,OO0 P,a.6/ Ilaseul on averagu uniqtualifict Le teacher s alry of 5FC352,000 I),a.
(Teaclier-pupi S ratio of 1:45 is reco:itinoteidot)
Note:
The number of qualLfied teachers is arrived at by adding tbe college and In-service outputsto tine previouis year's total minus LIho attrttion. The number of unqualified teachers isobtained as a residual between thio total number of teaclhers needed and the qualified teachersavailable. In bothi cases cost Is arriveh itt by multiplying thie total number of staff by anaverage annual salary of thc group.
4i; 1 / Iit, dliItf IUJLIWII 4i1J,liQ 1l;tquo1 I LiLl IVi$MEAR tri if i l Ii tiElt i Itt'AI.tI.. t iiltd, dll 1t.i'...&k:i ( lLJ,i:Otai--I (Jiu IIqUi il*IfEA lii .0At11.Vit . it IIL'J cost Cost cliCi
1/ Teacher-Pupl.l ratio of 1:45.2/ In this case assumiiing a 3% growtih in cnrolliments p.a.3/ 4Z attrition7i Outtut National Teaiciler 'rraining College5/ Based on average qualified teaciher salary of 'C533,000 p.a.6/ Based oin average unqtialifled toaciher salary of FC352,000 p.a.
(reacher-pupil. ratio of 1:45 is recominendedl) t .
NoLe: N
TeIO nitmber of qual itled teachIers Is arrived at by adding the college and in-service outputsto tihe previous year's total minlis tihe attrition. TIle nuimber of unqualifted teachers isobtained as a residuaL between the total number of teachers needed and the qualified teachersavailable. In both casas cost Is arrived at by multiplying the total number of staff by anaverage aniniual salary of the group.
HIICA'IATION SE(C'lTOR M101O0HANIMIJM
P'1RIMAIM Y THltA(:lCllURs D)1 FlU1IIIIBJUTION ANI) FO1tECAS'r
5, ti d,.il,,. w rit airlw teacher qual lea unaua3 tea tUal tea. LA+la .AL~L-_ L9,!dLJlaL.tWlALj.wA ll.1a, attuL IJJe it, riled cost Foit CO t
I/ Teacher-l'upil ratio of 1:50.11 In this case assuming a 3% growLI) in enrollnietits p.a.3/ 4% attrition4/ Output National Teacher Training College5/ Based on average qualifited tenclher saliary of FC533,00o p.a.6/ Based on avora8e unqualified teacher salary of FtC352,000 p.a.
(Tlnclier-pupil rAtio of I:45 is reco:inimiL.nded) ,'
Note: oJH0
The ntumber of qJualifiet1 toachers Is arrived at by adding the college and In-service outputsto the previous year'l totul miniuis the attritlon. The number of unqualifled teachers Isobtained as a residual between the total ntmiber of teachers needed and the qualified teachersavallable. In both casus cost is arrived at by multiplying the total number of staff by aniverage annual salary of the grouip.
I oiilillIll FIA1 1/ihlilli fdh Cilbhl6 II I ClillilAilil I AIIIIUAL GRONIH FACIOR FOR GRADE II 1.010 E1 ISTAIIII 01,l001 lL . i 2/5 W ilib 14IIitii6 011961ilil , lsme II IIZUait fOr 900% E lid ency lprovement: 10 )itsJil diltl 19h9
IL isa ruCIcuaaIuaidtutil th1 it dalril4g thlu nuxt five yeaars (l"e-I991) enrollnnunt Browtl at thte junior secondary level beI lni ull tZ10 I t 1il LI aL11 I I) iiLULIS#u-(I tllLi I I L Inatt s Ii S paptIli l oio LroiltII. , i
IL SlutuIlcil haW aaoLt.talalL prujurlt. bi I) ltsilg Cthu IZ rucoii'iuiianded ErowtIa witlh improved efficiency (78Z in 1991) wouldgAiila"L,u 20(91 IIguV autiLiIuvitLs Llilll aL tlhu pruauuit ufflulenicy rate used in optLon/ A.
I nilIlili ~l 3 4 111HIII tiult uuhtLi3,uh UllnI 1 IUIO 0IflId1l I AIIIIIIAL GRO4IH FACIOR FOR GRlADE 11 1.010 COIISIANII 633ILIIIIL'; 313E13.V 3 S3 IS; ,3IIJ)~ 6 S COIIbIiidIi I I:&, IluraZwiII IrJr 00Z El3fluery IaPrJoveenti 10 years3 Aller 1955
Dl11) Lo) Liu I il3l3 L uLi U1111IUOy11ulIL olil (3 rctull IL6c, IL IY runollillunlicd LIIUCt dlurJilg the noxt five yearsuuirtllul BIiIuu. 1rowL3a bu I JiJIUilu LO 1;Z j1l f1l IUwJJl tilut to Bu Icraucudurl gradually tS) eventuallyciisit 6l pupoI a LItIll gIrwoLII. ll lt,ur p rLjuu Llou 1I) tcl3lig tlet 1% rLconuhlutludIIeJ growtlh withs Iioproveduf fleluniiy (uilul. 7UX Ill 19''1), LI,uru would tiju 753 iu'ru graduates tiiiu untider projection BJilUIIJi I(IQ LIIU 111tdLUIIL UfflU1)liLY e ULL'.
I,
cottmitos
4IlJ1CAT'10N SECTOR MEMORANDUM
SlICONI)ARY TlCACIIERS l)lSTlItIBUTION AND PROJECTION I/
oiT Ir()N l: P'rosunit Rnt to
14 .Iti,illed 2' uiati iied 31 letbier qual tea unqual tea tltal tei 4/kii U I I LUE,IIl ratio IL j a,iwid tea.uAtrdin tei.uwastle leausiataqe col outPut inser.output tot.autput need cost cost cost
1/ S'wirco: HII'N. ivlicites teichlers fro,, colleges and lycees.21/ Attritiou/wilatLge of 4% p.n. of qualified teachiers.3/ Attritlon/wuatiago of 6% p.n. of unqtiiilifted teacihers.4/ tisinig averago yoierly salary of FC 560,250 for qualified teaciters atid FC 351,000 for the unqualified.5/ Assutmiing 162 enroliuinicut growtb.
Nu/ Nmihber of teachierts reqluired for I:34 teaclier pupil ratio.
Notel
Tite nuimber of qualifled teachers Is arrived at by addLng the college outputs to the previous year's 0total minuls the attrition. Tbe cost of unquialified teachers 18 arrived at by adding to theprevious year's total tile teaciher needis minus the attrition. In both asets, cost to arrived at by 0inhiltililylutg the total numlllber of staff by tlhv yearly average salary of the group.
1/ Source: MEN. e InIcludes teahelers from colleges g iid lycecs.2/ Attritioii/wistage of 4% pI.. of qualifiedl teacliers.3/ Attritioi:/wastnile of 6% 1.n. of itiqitinlifiecl teaclhers.41 UsIng average yearly salary of FC 560,250 for qualLfead teacliers and FC 351,000 for tlhe unzqualified.
A/ sAssuiming 1l1e fol lowiig enro IaIliont growtIIs; 1X to 1991, 2% to 1995 and 3X tilereafter./ Nuimber of teLacIters reai(iaIred for 1:35 Locier pupil ratIo,
Note:
The ntmiber of qualitied teachters Is arrived at by adding the collegp outputs to the previous year's " -
tntal miilts tile attritioni. 'hle cost of unqualified teachiers is arrived at by adding to the 0gprevious year's total tbe teacher needs minus the attrition. In both cases, cost Is arrived at by Nmultiplying tlhe total number of staff by the yearly average salary of the group. ot |
Pi %n HH
COMIOROS
RiD)UCI1l'IONt SECTOi MEMORANDUM
sUCONDARY 'l1ACllERS DISTRLBUTION AND PROJECTIN0 1/
OPT ION l11: Mtchtingi po1utldaion growcl:
IS aleed 2/ uitrali,ed3/ Leaschur qual teA Unqual teA total tea 4/
It L.,I, iolli iwl itIu lea.lrainit.d tea.uili ai: lea.ifastAqe tea.tieastae col output inser.output tol.output rieed cost cost cost
I/ Stuutc c 115ME. mu elSdes teacihers frain colleges and lycees.2/ AttritLLoan/1sta1ge of 4X p.a. of qualLfied tenchers.3/ Attrition/wastape of 6Z p.a. of utquitalified teachers./ lJsiiig averaige yuairly salary of FC 560,250 for qIualified teachers and FC 351,000 for the unqualified.
S/ Assumiiip a 3% wurollmant growth.6/ Numibihar of Loachiers requ iredi for 1035 teacher pupil ratio.
Notes
Tbe ntimber of qualified tencheru is arrived at by adding the college outputs to the previous year's total mlinus thei attrition. T11! cost of unqualified teachers Is arrived at by adding to the lireviouis year'a total the teacher nteeds minus the attrition. In both cases, cost is arrived at by m wmultilitying the total nuiaiabr of staff by the yearly average salary of thte group. L S
o H
*~~ ~ ~ ~ ~ *
COMOROS
I)LICAT'l ON SECTOR HEMORANDIUM
SEI)CNI)ARY TACHIERS13STRIBUT1ON AND PROJECTION 1/
OPTIrON IV Incruaisetl Ratio
Iu1 tII.ined 2/ untrained 3/ Leiche: qua! tea unqual le total teA 4/1EAR eii Ien ol st-nt rat1o lea.Alauiled tea.u1ir amn telaaastage tea,watidqe col output iinier.output lot.output need coDt cost cOal
1/ Source: lIEN. Iil ueil s tcalchiers froin colleges and Iycees.2/ Attritlal/wait;oge of 4% p.n. of qtialified teachiers.'3/ Attrttion/wnastngu of 62 p.a. of unettinlified teachers.7#/ UsiIng 'iverage y3arly unlary of Fc 560,250 for qualified teachers and FC 351,000 for the unqualified.5/ AssuIing a 3% cnr I Sineout growthi.6/ Numiber of tLnchIIurs requtiiredl for 1:40 toacher pupil ratio.
Note
The nuimber of quiallfied teachers ts arrived at by adding the college outputs to the previous year's i total minuts the attrition. The cost of unqualified teachers is arrived at by adding to the rprevious year's total the teacher needls minus the attrition. In both: cases, cost is arrived at by -m Imultiplying the total niumber of staff by the yearly average salary of the group. oa
COMOROS ANNEX IIlable 1U
EDUCATION SECTOR HEU-ORANDUM
HIGHE EDUCATION FELLOWSHIPS ABROAD
REPARTITION DES BOURS IERS A L' ETRANGER
1983/84
C . ~~~~~~~ ~~~FRACE EURCPE MAGHEEB AFRIQUE :AUTRES - ~~~~~~~~ ~~~~~~~~~~~: NOIRE : , ) TOTAL
Sciences Naturelles Biojogj&."..*.e.. 4 lo )1
Edlucation Physique .............
CPsychologie .............. e......... 2 2
Tfioit ........ aaaaaa*caaaa***...... 7 5 : 8 : I 21
(z',c. Feco. Gestion *................ 19 :7 : 29
(Adm. Eco. et Soc. ........... 18 *) 18
(Sc. Pali. Administrative ...... 4... 3 1421
(Commerce ..............
Touzrisme H8tel ... ..... 2 ......
C inter-oretariat .................. 2 1 )4
(Journalisme ............. 2 5 9 1
(Informnatique ............... . 2 .
(ElCictzro- ElectricitC...... ..... 9 3 : 2 2 L6
( El.ctrarnique . ............ 8 :*8
CArchitecture............ . 7 3
CPsychologie Bioch-imie Chimie 7...... 8
C 36canique ............. 2.)
94 -45 19 10 168
11 Eastern Block: Speciakty Unknown.Pays de 1'Est: Etudes non corinues.
Soutrce: Recensement General de la Population, 1980
- 57 -
COMOROS lablEX rIIEDUCATION SECTOR MEMORANDUM Page 1 ot 8
LIST OF VIABLE PRIMARY SCROOLS
The recomendations of thu Unesco school mapping exercise of 1981 weretnat a school cannot be built where the population is less than 470 inhabitantsand within a recruitment radius of 3kn. The density of population must be atleast 50 inhabitants/1m2. The following table indicates catchment areas inrelation to gross enrollment rate reached and where scho3ls should exist ineach island.
A. Grand Comore -
Region BAJAINI
Enrollment aCatchment area DensitvRate 2 class-i 3 cLass- Within a 3 km radius Within a 5 km radius
NG"I !°05 t05 !2 Classes I I 6 KIIANID "v00 105 jZClas3es
t(B.55SE 550 j150 :3Classes i
61; 3 10 Clas.-es~TA~C0UDJ * ! *6 _ _
- 65 -
ANNEX IITable AI;-
COMOROS
EDUCATION SECTOR MEMORANDUM
PROPOSED STRUCTURE OF PRIMARY SCHOOLS
One Classroom School Two Classroom School Three Classroom School
Grades Grades Grades
I 2 31-2-3 1 4-5-6 1 12 3-41 S-6
One Teacher Two Teachers Three TeachersNo. of Pupils No. of Pupils No. of Pupils
|Xin. | ax.| Min. | lax. min. M ax.|25 60 50 120 90 ISO0
Four Classroom School Five Classroom School Six Classroom School
Grades Grades Grades
1 12-314-51 6 1 1 2 1 3-4 15 161 1 2 3 14 5 6
Four Teachers Five Teachers Six TeachersN1o. of Pupils No. of Pupils No. of Pupils
Min. i .tax.l lMinm. Max. |Min |Max.ISO 225 300 270 360
For schools with larger enrollment the administration would use the fullsix-classroom primary model plus one of the above models -which wouldprovide accommodation for the additional pupils. This type of policy wouldhelp the MEN standardize the allocation of teachers.
EVIUCATION SECTOR. HIIORANVUUi
plitoplolel) CONSOLIDATION OF SECONDARY SCHOOLS
GRAtIDE COMIORE
* Selucted acilools witli workshops
u Selected schools without workshops
xxxxxxxxxxxx 0 Scliosls not rotained after consolidation
STIIIIN'1I'E N llOI.lMEN'TS TOU11 rOTA. CLASSROOMS TOTALNUJMBIER ANI) Dl)U- llACll OT - LOCALITIES WHERE STUDENTS, POPTLA-
NAM1~~ oL scuooi. I)J~~~- ~HACIF NOT ~~ ENROLLED AT TUEH SCIIOOL, PPLNAbILl OL? SCHlO(l. 6&ea 5am a ijme 3Ums IOTL PAk'L'1 'IS; USED USED) ro_ ENROlL TION
24. _4 4 1 3 II 0 3, _ N DEtD2lI-T5IN!liOI'l0tIGlO-KANDZILE:IWIUDE-HBOINI-ITSOUNDZOU-Pt.JIDA
SLtidelitS enrolled at lRtical Schlools, willch must be consolldated, will haveprioricy for enrol Iment at Rural Scihools located within their domicile. 0 m
j5 tn
ANJOUAN
LEO..IliL8 | -- Selected sclhools wili workslhops
Selectedl scIools witihout workshopsXXXXXXXXXxX Sa-.ools niot retLlinetd after consolidatlon
STIII --T -.ENR0 TeS TOTAT TOnAL -T SR LOCALITIES WIERE STUDENTS, TOTALNUMBER AND - DE- rEACII NOT OTAL ENROLLED AT THlE SCIIOOL, POPULA-
NAIME OF SCIIOoi. 6amo 51me 48me 3ime TOT$'L LART- LIjS USED USED COME FROM
As acm efficient measure, the coiisolidatloin of four Rural Schoolsinto two sclhools is necessary. The two selected schools would beprovided iiltl worksHops.
kian :DEG _ u Selected sclhools witlh workshops after consolidation
XXXXXXXxxx u ScIIoo1ls ot retained after consolidation
9-55D5NT INRO11M NTS TOTAT rOTAI. T 'sRfn L LOCALITIES WIERE STUDENTS, TOTALNUMJBER AND T l D1- LEACII Not TO- ENROLLED AT TIIE SCHOOL, . POPULA-
NANIE Ol' SCllOOl. 64me S&ne 4&ae )& eTOT^I >11 3NgrT eRS USED USEI) ORL COME FROM TION
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