Document of The WorldBank FOR OMCAL USE ONLY Repor No. 12495 PROJECT COMPLETION REPORT JORDAN FIRST MANPOWER DEVELOPMENT PROJECT (LOAN2633-JO) NOVEMBER 17, 1993 FILE COPY Report No: 12495 Type: PCR Population and Human ResourcesDivision CountryDepartmentII Middle East and North Africa Region This docuament has a restricted distribution and may be used bv recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. 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
Document of
The World Bank
FOR OMCAL USE ONLY
Repor No. 12495
PROJECT COMPLETION REPORT
JORDAN
FIRST MANPOWER DEVELOPMENT PROJECT(LOAN 2633-JO)
NOVEMBER 17, 1993
FILE COPY
Report No: 12495Type: PCR
Population and Human Resources DivisionCountry Department IIMiddle East and North Africa Region
This docuament has a restricted distribution and may be used bv recipients only in the performance oftheir official duties. Its contents may not otherwise be disclosed without World Bank authorization.
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HASHEMITE KINGDOM OF JORDAN
Name of Currency Jordanian Dinar (JD)
Year Exchancre Rate
Appraisal Year AN-age (1985) US$ 1 = 0.400 JDCompletion 'Year Average (1992) US$ 1 - 0.688 JD
ABBREVIATIONS
JIPA Jordan Institute of Public Administration
MOH Ministry of Health
MOP Ministry of Planning
NPITI Nursing/Paramedical Integrated Training Institute
OSHI Occupational Safety and Health InstitutePCR Project Completion Report
PIU Project Implementation UnitPMU Project Management Unit
TA Technical Assistance
TTC Trade Training CenterVTC Vocational Training Corporation
FISCAL YEAR
January 1 to December 31
FOR OFFCIAL USE ONLYTHE WORLD BANK
Washington, D.C. 20433U.SA
Ofhce of mrectof-GeneIOperalons Evaluation
November 17, 1993
MEMORANDUM TO THE EXECUTIE DIRECTORS AND THIE PRESIDENT
SUBJECT: Project Completion Report on JordanManpower Develonmeat Project (Ln 2633-JO?
Attached is the Project Completion Report on Jordan - Manpower Development Project(Ln. 2633-JO) prepared by the Middle East and North Africa Regional Office. Part II was prepared bythe Borrower.
This eighth project in the human resource sectors is rated as satisfactory. It wasappropriately identified aud in design and scope was suited to the capabilities of the implementingagencies. It achieved cost savings, and disbursement and completion were attained within the plannedtime-frame. Through expanding access to training by building and equipping key institutions forvocational training, health care and public administration, the project largely achieved its objectives ofincreasing the supply of trained middle level technical workers for the public and private sector toreplacing expatriate labor. In health technician training original enrollment targets were reduced tomatch market needs. The PCR does not comment on whether training quality was enhanced to produceemployable graduates.
The project's implementing units and project training institutions increased theirmanagement capabilities. Institutional development is rated partiaL
Sustainability is likely given high commitment to human resource development, reportedstrong demand for graduates and the consulting services of project institutions, together with adequatefunds and support for operations and maintenance.
The PCR paints a positive picture of the entire project process and covers key datarequirements. It omits mention of progress on the innovative Occupational Safety and Health Institute'sprogram. Part II provides insightful comments and useful recommendations on the Bank-Borrowerpartnership which was assessed as beneficiaL
The project is not planned for audit.
Attachment
This document has a etrictwd dstributon and may be used by recipients only In the performance of their officialduties. ts contents may not otherwise be disclosed without World Bank authorWion.
ANNEX 1. Persons Participating in Completion Mission ... . 27
MAP - TBPD IlS45P,
This document has a restricted distribution and may be used by recipients only in the performanceof their official duties. Its contents may not otherwise be disclosed without World Bank authorization.
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HASHEMITE KINGDOM OF JORDAN
FIRST MANPOWER DEVELOPMFNT PROJECT(LOAN 2633-JO)
PROJECT COMPLETION REPORT
PREFACE
i. This is the Project Completion Report (PCR) for the First ManpowerDevelopment Project in Jordan, for which a Bank loan (No.2633-JO) in theamount of US$10.2 million was approved on November 12, 1985. An amount ofUS$7,477,340.64 million was disbursed from the loan and the project closed onDecember 31, 1992. A balance of US$2,722,659.36 million was unutilized andcancelled effective May 17, 1993.
ii. The PCR was jointly prepared by the Population and Human ResourcesDivision of the Middle East and North Africa Regional Office (Preface,Evaluation Summary, Parts I and III), and the Borrower (Part II).
iii. The preparation of the report was facilitated by data collectedduring a project completion mission to Jordan in January 1993. The PCR isbased, inter alia, on information contained in the Staff Appraisal Report, theLoan Agreement, supervision reports, correspondence between the Bank and theBorrower, internal Bank memoranda and interviews with Jordanian Governmentofficials who were closely associated with the project.
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PROJECT COMPLETION REPORT
HASHEMITE KINGDOM OF JORDAN
IRST NPONER DEVELOPMENT PROJECTLLA 2633-JO)
VYaA&TION SUMMARY
A. Obiectives
The project was designed to assist the Government in implementingpriority manpower development programs which would: (a) increase the annualsupply of skilled and semi-skilled workers trained in Vocational TrainingCenters (VTC) by about 1300, and enable the VTC's Occupational Safety andHealth Institute (OSHI) to increase the productivity of the workforce byreducing the incidence of occupational accidents and worker injuries; (b)improve the quality and coverage of management and administration trainingoffered by the Jordan Institute of Public Administration (JIPA), contributingto better organizational procedures and management/administration practices;and (c) enable the Ministry of Health (MOH), through the construction of aNursing/Paramedical integrated Training Institute (NPITI), to increase theannual supply of nurses (60), midwives (25) and health technicians (155),thereby addressing shortages, allowing eventually for replacement of non-Jordanian personnel, and improving the quality of health services.
2. To acnieve these objectives, the project provided financing for:
(a) the VTC, by providing civil works, furniture and equipment forfour new trade training centers (TTCs), extension of two existingTTCs and the OSHI; and TA for the extended TTC and the OSHI;
(b) the JIPA, by providing equipment and technical assistance; and
(c) the MOH, for civil works, furniture, equipment and TA for theNPITI.
3. The Bank agreed to amend the project's description in February1991, to include the extension of a VTC drivers, training yard.
B. Imnilementation Exoerience
4. Project start-up was facilitated by the availability of Jorianianstaff experienced in implementing World Bank projects, having worked in twoproject implementation units financed under the Fourth Education project(Loan 2068) and the Primary Health Care project (Loan 2531). Bank staffconducted an in-country seminar cum project launch workshop which wasinstrumental in shaping the relevant officials' understanding of the project'sobjectives, Bank guidelines and reporting relationships between thd-ViD1Fdt--financed entities (JIPA, VTC and MOH), the Bank and the hinistry of Planning.
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5. Civil works, equipment and furniture procurement were undertakenand completed satisfactorily under all project components. Project-relatedtechnical assistance was provided through loan funds, grant financing and aUNDP project. The tracer study to monitor the employment prospects of NPITIgraduates was not completed, as these trainees are all employed by theGovernment after graduation. Project costs were lower than expe_ed mainlydue to the need to procure less than the projected amounts of equipment andfurniture because some institutions were merged and less furnishings wererequired, and to unit cost changes resulting from the devaluation of the JDduring the implementation period of the project.
C. Proiect Results
6. Planned civil works, equipment and furniture procurement, and thetechnical assistance program were successfully completed. The TTCs areoperational and active in providing training and apprenticeship programs in avariety of trades relevant to industrial needs; the OSHI facility and JIPA areperforming efficiently. The project has increased the stock of nurses,midwives and trained health technicians (see para. 12 (c)), which will reducethe dependence on expatriates to provide these services. Moreover, trainingfor the nursing and midwifery professions have exceeded appraisal targets butthe paramedical technician training was scaled back by the authorities toensure that the availability of their services is in line with market needs.The project closed at its originally planned completion date and approximatelyUS$2.72 million in unutilized funds was cancelled, as project costs were lowerthan anticipated at appraisal.
D. Proiect Sustainabilitv
7. Demand for graduates of project institutions is strong and steady:VTC trainees are readily accepted for jobs in industry; JIPA and OSHI areproviding consultant services beside their regular training functions whichwill assist in sustaining their quality and fiscal viability. There is strongGovernment commitment to fund operations and maintenance at projectinstitutions: maintenance and upkeep of the facilities is efficient at projectsites and this will ensure the continued functioning of the institutions at asatisfactory level.
E. Conclusions and Lessons Learned
8. The project was a success in achieving its objectives and itsimplementation phase reaffirmed the importance of:
(a) holding a project launch workshop to acquaint counterpart staffwith the objectives and requirements of the project and their rolein ensuring an efficient and effective implementation;
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(b) utilizing similar designs for project institutions; this is acost-effective measure which provides a standardized way ofcarrying out future construction o.f institutes;
(c) including only necessary covenants in the Loan Agreement, as thecovenant for a tracer system for MOH institute graduates wasunnecessary since all NPITI students are government employees andstudy under fellowships with the obligation to serve in thegovernment at least double the time they have spent in theirstudies. The attrition rate after the compulsory service periodis reported to be negligible.
HASHEMITE KINGDOM OF JORDAN
FIRST MNPOR DEVELOPMENT PROJECT(LOAN 2633-JO)
PROJECT COMPLETION REPORT
PART I: PROJECT REVIEW FROM THE BANK'S PERSPECTIVE
A. Proiect Identity
Project Name: First Manpower Developmznt ProjectLoan No.: 2633-JORVP Unit: Middle East & North Africa Region
Country Department IICountry: Hashemite Kingdom of JordanSector: Population and Human Resources
Subsector: Training
B. Prolect Backcrround
1. Sector Develo2ment Obiectives. Jordan has one of the highest
enrollment rates among middle-income countries. Vocational education plays a
major role in preparing young Jordanians to be productive workers and tocontribute to sustained national economic growth. The official vocational
education entity is the Vocational Training Corporation (VTC), which providesyoung males and females with blue collar and commercial skills through three-
year apprenticeship programs. VTC, which is operated cooperatively withprivate industry, also sponsors intensive short courses and upgrading programs
for unemployed workerk Management training is provided primarily by tLeJordan Institute of Public Administration (JIPA) and the Jordan Institute ofManagement.
2. The project was prepared during the latter half of 1984, duringthe Government's 1981-85 Development Plan. This Plan tried to create an
institutional framework and investment climate to strengthen the private
sector, extending education, health and other public services and utilities to
all regions; to raise the production potential of the population through
education and training; to increase the participation of women in the labor
force; and to upgrade the efficiency of the public sector.
3. The Plan period witnessed considerable development activities and
high economic growth rates generated by the relocation of foreign corporations
to Jordan during the war in Lebanon; heavy use of the port of Aqaba for
transit trade to Iraq during the Iraq-Iran war; and remittances from
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Jordanians working in oil-exporting countries (about 40% of the Jordanianlabor force in 198S worked abroad, of which 85% were in the oil-exportingMiddle East countries). Nevertheless, the momentum of development andeconomic growth experienced during the early 1980s could not be sustained asoil prices fell, thersby reducing remittances.
4. Slower economic expansion, alone 4.1th the completion of majorinfrastructure development in the Oil States, reduced the demand for Jordanianworkers abroad. Migration from the West Bank to the East Bank had increasedsignificantly, with non-Jordanian workers replacing Jordanian migrants to theoil states. The late 19808 and the early 1990s reversed the net manpowerdeficit situation of the past decade through reduced migration to the Gulfstates, increased female labor force participation and rapid populationgrowth.
s. The Goverrment responded to the slowdown in economic growth byfocusing on a human resources strategy that would increase employmentopportunities by improving the quality of the labor supply. The strategyincludes a comprehensive ten-year, three-phase reform of basic and secondaryeducation, together with institutional and policy development initiatives forscientific and technological capacity-building. The strategy also tries toimprove the country's human capital resources in order to revive domesticgrowth and maintain external balances over the long term; and to enhance thequality of the education system to improve the capacity of school leavers tocompete in labor markets, at home or abroad. In line with this strategy, theMOH component was modified during project implementation through the merger ofsome facilities (para 12.c).
C. P?roiect Obiectives and Description.
6. Prolect Obiectives. The project was to assist the Government inimplementing priority manpower development programs which would:
(a) increase the annual supply of VTC-trained skilled and semi-skilledworkers by about 1,300 (about 20% of the incremental supply ofskilled workers by 1989); and enable the VTC's Occupational Safetyand Health Institute (OSHI) to reach some 500 managers, safetyofficers and trainers through advisory services to enterprises andseminars, so as to increase the productivity of the workforce byreducing the incidence of occupational accidents and workerinjuries;
(b) improve the quality and coverage of management and administrationtraining offered by JIPA, reaching some 1,000 participants fromthe public and private sectors per year in courses and seminars ofvarying duration, and contribute to better organizationalprocedures and management/administration practices through JIPA'sprogram of applied research and consultation; and
(c) enable the MOH, through the construction of NPITI, to increase theannual supply of nurses, midwives and health technicians, thereby
alleviating shortages, allowing eventually fcr replacement of non-Jordanian personnel, and improving the quality of health services.
7. Proiect Comnonent_ . The project provided financing for:
(a) the VTC, by providing civil works, furniture and equipment forfour new trade training centers (TTCs), extension of two existingTTCs and the OSHI; and TA for the extended TTC and the OSHI;
(b) the JIPA, by providing equipment and technical assistance; and
(c) the MOH, for civil works, furniture, equipment and TA for theNPITI.
8. The Bank agreed to a Government request to amend the project'sdescription in February 1991, to include the extension of a VTC drivers'training yard. Construction started in July 199. aead was completed by May1992.
D. Proiect Desicn and Oraanization
9. The project was designed to m Jordan's priority manpowertraining needs, which were identified as: (a) improvement and expansion ofvocational training programs for 'blue collar' skilled and semi-skilledworkers and supervisors, particularly for industry; (b) reinforcement ofmanagement training, especially in-service upgrading for the corps of managers(private and public sectors) which grew rapidly during the period leading upto the 1981-8S Development Plan era, as well as pre-service training formanagers for new, more sophisticated enterprises; and (c) expansion of healthtechnician and para-professional training programs. The project's componentswere designed to complement the Government's strategy of increasing employmentopportunities through manpower development. Specifically, the projectincluded:
(a) The VTC Comvonent. Four new TTCs and extensions to two existingTTCs were envisaged to help expand the training and upgrading of skilled andsemi-skilled labor through extending the training capacity in existing tradesand introducing new specializations such as instrumentation, control systems,maintenance of business machines, and operation of heavy equipment. Thecomponent also included a new OSHI facility to be constructed, furnished andequipped. This was a timely and well-focussed program designed to augment theVTC's sound ties with industry through its training functions and its mandateto increase the productivity of the workforce by reducing the incidence ofoccupational accidents and injuries.
(b) The JIPA Comnonent. JIPA is the longest established managementand administration-training organization in the country. It was establishedin 1968 as an autonomous public entity to improve administration in bothpublic and private institutions. The project's support of JIPA's role inmanagement and administration training by providing fellowships for trainingtrainers, expert services to assist in designing teaching materials, teaching
methodology and evaluation of training, plus audio visual and other equipmentand library materials was valuable and timely. This support enabled JIPA tofunction effectively and fulfill its objective of enhancing job performance inthe public and private sectors to serve the social and economic developmentplans in Jordan through training and management development programs.
(c) The Ministry of Health (MOH) Comnonent -- thi NPITI. The projectwas also organized to finance the country's second NPXTI under the auspices ofthe MOH. The plan to construct, furnish and equip a new training institute inZarka, along the same designs as the one constructed at Irbid under the FourthEducation Project (Ln.2068-JO) was cost-effective and efficient, asconstruction and implementation of this facility benefitted greatly from thelessons learned from the construction of the irbid institute. This institutewill assist in alleviating the shortage of nurses, midwives and healthtechnicians, improve the quality of health services, and develop further theparamedical and nursing professions. The anticipated annual output of 260graduates (80 nurses, 25 midwives and 155 health technicians) would contributeto meeting the MOH targets for improved delivery of health services. TheNPITI was designed to enroll about 50t female trainees, and it was supportedby USAID technical assistance.
(d) Technical Assistance (TA. under Lhe project for the VTC, MOH andJIPA included fellowships (about 80.5 staff months) and expert services (about60 staff months) to strengthen institutional capacity. As noted above,USAID-funded technical assistance for the NPITI institute was included tosupport four training specialist consultants, for an estimated three staff-years each, plus short-term consultants for a total of one staff-year. Thiswas specifically intended to start the new institute off on a sound footing soas to ensure the development of quality at the teaching/program level. It wasalso a good design strategy to have the Government secure, through grantfunding, a significant portion of the TA planned for the project. This wassuccessfully accomplished through bilateral funding for the MON and VTCcomponents, and through a UNDP program for JIPA.
(e) Loan Covenants were straightforward and complied with except forthe requirement (Section 4.02 of the Legal Agreement) that a tracer system beestablished for all MOH paramedical training institutions, with the primarypurpose of analyzing job placement opportunities. This covenant should nothave been included in the project, given that all MOH institute graduates arerequired by law to work for the Government, and, therefore, there is no needto trace them after graduation.
E. Prolect Imnlementation
10. The original project components were substantially completed bythe planned completion date of December 31, 1991 and the loan closed, asscheduled at appraisal, on December 31, 1992. Project start-up, thoughdelayed by the postponement of the original terminal date of effectiveness tofacilitate the ratification of documents and transmittal of the legal opinion,was facilitated by the acquisition of sites for the TTCs as well as adequatesources of water supply and municipal electricity. A suitable site for the
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MOR NPITI was also acquired prior to the loan's effectiveness and the use ofthe designs of the Irbid NPITI (financed under the Fourth Education Project -Ln.2068) facilitated the timely implementation of this component.
11. An in-country seminar cum project launch workshop conducted byBank staff was instrumental in shaping the relevant officials' understandingof the project's objectives, Bank guidelines and reporting relationships(between the project-financed entities, the Bank and the Ministry ofPlanning). Furniture and equipment procurement was implemented withoutdifficulty, athough slightly delayed in the case of some JIPA supplies and thequality of the goods supplied was satisfactory. For some components, some ofthe furniture and equipment requirements were provided through grants fromCanada, Germany, Australia, the USA and UK. Some further equipmentprocurement needs were identified at one of the TTCs (Aqaba) specifically forspare parts and heavy-duty training center machinery. However, theserequirements were not communicated to the Bank and unutilized loan funds werenot made available for this purpose. As noted previously, the project's TAprogram was funded mainly with grant assistance and was successfullyaccomplished. Implementation highlights for the project components are notedbelow:
(a) The VTC com2onent. A project implementation unit (PIU) which hadbeen established at the VTC under the Fourth Education Project (Loan 2068-JO)was adequately staffed to manage and administer the VTC component of the FirstManpower Development Project. Construction was well-executed and adequatelysupervised. All project training centers originally included in the projectwere completed by December 1990, at which time four of the centers had begunfunctioning. Technical assistance activities (curriculum development forselected specializations) were completed and the curricula and instructionalmaterials field tested as part of an evaluation and finalization process.Certain foreign specialist services were replaced, quite successfully, bylocal experts. OSHI began its operations in 1983 on the premises of the WadiSeir TTC and construction of the new facility was completed in 1988. The newTTCs and OSHI are well located with adequate access to the surrounding areasand industry. The site layouts provide a pleasant environmenc and areappropriate to their functional requirements. only one of the VTC sitesexperienced considerable delay due to the financial difficulties of thecontractor and the subsequent appointment of two other contractors to completethe work. The buildings were well planned and provided the necessaryfacilities. Maintenance is adequately carried out by TTC staff and students.
(b) The JIPA ComDonent. This component of the project also performedvery well. It had accomplished most of its objectives by mid-1990 (with theexception of final procurement of additional instructional equipment andmaterials, as well as some of the scheduled technical assistance). All 36staff-months of fellowship training planned for the program were completed.Although only about five weeks of the planned 24 staff-months of consultantservices were financed from the loan, the remaining specialist services werefinanced mainly by USAID and staff training was completed by the end of 1988with excellent results. UNDP financed the remaining specialist services (atotal of 26.75 staff-months) envisaged by the project under their program withJIPA (JOR/89/501) which began in 1990.
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(c) The NPITI. The design of the building at Zarka replicated that ofthe Irbid Institute which was financed under the Fourth Education project(Loan 2068-JO). However, while the buildings were designed for about 760student places, the merger of the Amman and Zarka nursing colleges has createdheavy demands on teaching space, particularly on classrooms, which aredesigned for thirty students and which now accommodate fifty. Maintenance ofthis institute has been carried out efficiently. A private firm, under a two-year contract with the MOH, is responsible for upkeep of the premises. Azesident MOH engineer inspects the buildings and assesses the need forrepairs, after which the private firm is responsible for undertaking thenecessary actions. Staff of the MOH PIU which was created under the FourthEducation Project (Loan 2068) were suitably trained and knowledgeable aboutBank guidelines and procedures to carry out the implementation of the FirstManpower Development Project. In addition, staff of a project management unit(PMU), created under the Bank-financed Primary Health Care Project (Loan 2531-JO) monitored and facilitated the ongoing action programs. A tracer studywhich was to be started under the Fourth Education Project and continued underthe First Manpower Development project by the MOH was not done because allNPITI students are Government employees and study under fellowships with theobligation to serve in the Government at least double the time they have spentin their studies.
(d) Prolect Costs and Disbursements. Actual project costs amounted to75% of those originally estimated due to the merging of two paramedicalnursing institutes for efficiency, thereby requiring less equipment andfurniture than anticipated at appraisal; and to changes in unit costsresulting from the devaluation of the JD during the implementation period. Abalance of US$2,772,659.36 million in loan funds was unutilized and cancelledeffective May 17, 1993. Disbursement performance was very impressive duringthe project's initial implementation phase and far exceeded appraisalestimates during 1986-1989.
F. Prolect Results
12. The project's physical targets were all achieved. Although theactual outputs for OSHI, the VTCs and the NPITI in 1991/92 were still lowerthan the appraisal estimates, they are expected to approach these estimates byfull project development (1995). Enrollments are close to those anticipatedat the project design stage with the exception of the NPITI, where aGovernment deciE )n to reduce the planned trade training courses for theparamedical institute from five to two, has limited the number of enrollees inongoing programs (Table 10). Construction at the project institutions was ofabove-average quality and maintenance mechanisms for the facilities issatisfactory. Procurement of furniture and equipment was carried outefficiently, with the exception of some minor delays for the JIPA component.Covenants were all complied with except for the decision to cancel therequirement for the tracer study (to monitor job placement of NPITI graduates)since trainees are all employed by the Government. There were some delays inthe submission of audit reports for the MOH component. Project costs werelower than anticipated at appraisal for all project components due to themerging of project facilities (MOH component) which reduced the need for
equipment and furnishings; and to unit cost changes resulting from thedevaluation of the JD during project implementation. Specific results areprovided below:
(a) The VTC has estimated that the total number of employers andenterprises who have benefitted from the project is approximately 1343. TheOSHI facility is fully operational and is promoting the application ofoccupational safety and health standards in Jordan through advice togovernmental and official bodies concerning safety standards; providingtraining services to official organizations and to industry, promotingteaching of health and safety through the educational system; providingconsultancy services to industry, and conducting work studies in the field ofoccupational safety and health throughout Jordan. Consultancy servicesundertaken by OSHI include, inter alia, safety policies and programs forspecific companies; appointment of safety officers and staff; and selectionand use of all forms of safety equipment.
(b) JIPA's overall program of administrative/management training aswell as the organization's efficiency in fulfilling its mandate was improvedthrough the receipt of training, audio-visual and filing equipment, as well asoffice machinery and other supplies financed under the project. Mostimportantly, its updated resource-training films library is utilized not onlyby JIPA but also by other educational institutions in the country such as theUniversities of Jordan, Yarmouk, Mu'tah, the Jerusalem Open University, andthe Royal Jordanian Airlines Training Center. Computer systems were developedfor all fields of managerial, financial and documentation activities at JIPAas a result of the installation of the computer hardware and systems software.In JIPA's case, expert services were secured with UNDP financing -- about$750,000 (of the total amount of $1.25 million). The UNDP three-year trainingprogram began in 1990. During 1991, JIPA conducted fifty-nine general andspecial training programs of short duration totalling 2341 training hours andattended by 1141 participants. General programs are usually issued in aspecial brochure circulated to all public and private agencies in the country,inviting employees from various departments to participate. Special trainingprograms are training courses designed to fulfill particular needs in onedepartment or ministry upon request. Such programs are attended byparticipants from the requesting agency.
(c) The NPITI. With regard to the training for nurses, about 328 havebeen enrolled since 1989 (startup of the project-funded institution) and atotal of 287 had graduated by 1991/92. About 147 midwives enrolled from :989through 1992 and a total of 102 had graduated by 1991/92. About 140 nursesand midwives graduated in 1991/92. This output far exceeds the appraisaloutput annual targets of eighty nurses and twenty-five midwives by fullproject development in 1995. With regard to the paramedical institute at thesame facility, training in five trades was in progress up to the 1990/91school year but was reduced to two trades (Public Health and X-RayTechnicians) by 1992/93, in conformity with Government policy. In 1991/1992,ninety-one graduated as techniciars. About 131 graduates are expected for1992/93, which is close to the appraisal estimate of 155 graduates at fullproject development (1995).
G. Proiect Sustainability
13. Demand for graduates of project institutions is strong andsteady: VTC trainees are readily accepted for jobs in industry; JIPA and OSHIare providing consultant services beside their regular training functionswhich will assist in sustaining their quality and fiscal viability. There isstrong Government commitment to iund operations and maintenance at projectinstitutions: maintenance and upkeep of the facilities is efficient at projectsites and this will ensure the continued functioning of the institutions at asatisfactory level.
H. Bank Performance
14. Bank supervision missions reviewed the progress of the project'scomponents at least once a year and were effective in monitoring projectactivities. As a result, loan funds were utilized efficiently and the majorproject components were completed alhead of schedule. Project indicators werecollected, analyzed and discussed with counterpart staff, and issues wereaddressed promptly. The Bank also provided expertise, guidance and coachingregarding its guidelines and procedures, as needed during projectimplementation. In its review of the project the JIPA agency noted that moreclarification of the financial procedures required to implement the projectcould have been provided by the Bank and that there was some delay in theBank's procurement approval responses. VTC management noted in its reviewthat Bank supervision missions should be timed to coincide with criticalimplementation events, to facilitate a joint review of documentation andthereby avoid time-consuming correspondence.
1. Borrower' s Performance
15. Regular quarterly and yearly reports were provided by the VTC andJIPA, greatly assisting the Bank in monitoring the progress of the project,both at headquarters and during field visits. All agencies prepared veryprofessional and detailed end of project reports which facilitated the Bank'spreparation of the project completion report. Staff at all institutions andagencies were available and willing to assist the Bank review missions,specifically in the provision of data and arrangements for site visits. TheMOP provided a valuable liaison function between the project entities and theBank and was very efficient and successful in securing technical assistance --fellowship training and expert services -- for the various project-financedentities.
J. Borrower-Bank Relationship
16. Bank supervision staff were consistent in their support tocounterpart staff, which facilitated effective and efficient projectimplementation. All Jordanian personnel in charge of project related
activities were efficient, professional and cordial in providing documentationand carrying out the recommendations of the Bank. Bank staff and localproject staff greatly benefitted from each other's experience and assistancethroughout project implementation.
K. Consultinci Services
17. Expert services for civil works were utilized mainly under the VTCcomponent of the project and the designs and tender documents for the VTCtraining centers were prepared under the supervision of VTC management, byconsultant architects and engineers whose qualifications and experience wereacceptable to the Bank. An engineering firm was engaged for the design ofbuildings and the preparation of construction tender documents for allinstitutions supported under the VTC component (with the exception of the TTCat Irbid where design and construction were the responsibility of theIndustrial Estate Authority - who later handed the site over to the VTC).Under the managemnent and direction of the UNDP, experts were secured toprovide services for JIPA. Considerable grant assistance was provided to theMOH for expert services.
L. Prolect Documentation and Data
18. All relevant working papers, including end of project reports fromthe VTC, JIPA and MOH were readily available for use in preparing the PCR.MOH staff also provided their documentation with regard to projectimplementation promptly, but experienced some difficulty in determining theproportion of the technical assistance they received which was directlyrelated to project objectives. Actual costs of grant-financed technicalassistance had not been computed by the recipient agencies and could not beadded to the costs of the project. The Bank's staff appraisal report (SAR)was well documented, provided a suitaele background of information for theconditions existing at the time the project was appraised and was a usefultool in monitoring progress of the various project-related objectives. Thelegal document was also concise and clear and, together with the SAR, assistedthe implementing agencies in the execution of project-related functions.
M. Conclusions and Lessons Learned
19. The decision to utilize the same designs for the NPITI instituteat Zarka as those prepared for the Irbid NPITI financed under the FourthEducation Project (Loan 2068-JO), was cost-effective and enhanced theimplementation of this component. In spite of the changes in managementpersonnel at the MOH during the project's implementation phase, project-related activities progressed smoothly mainly because key PIU staff who hadbeen trained in Bank procedures and requirements under a previous,Bank projectwere experienced in the implementation of Bank projects. Moreover, a projectlaunch workshop at the project's inception assisted all relevant counterpartstaff in understanding the objectives and requirements of the project andtheir role in its implementation. Finally, it was an oversight to include thecovenant for a tracer system for MOH institute graduates in the Loan
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Agreement, given that all NPITI students are government employees and studyunder fellowships with the obligation to serve in the government at leastdouble the time they have spent in their studies.
PART IIPROJECT REVIEW FROM BORROWER'S PERSPECTIVE
THE JORDAN INSTITUTE OF PUBLIC ADMINISTRATION (JIPA)
A. Comments on Part III:
All information provided in Part III of the Project Completion Report isadequate and accurate. The analysis contained in Part I of the PCR isalso very realistic and logical.
B. Bank Performance:
Despite the fact that the project workshop was instrumental to acquaintlocal couaterpart staff with the objectives and requirements of theproject, a few steps should be taken to increase the efficiency of suchworkshops in the future such as:
1. More clarification of the financial procedures required; therelationship between the Ministry of Planning as the nationalfinancial supervising body through which disbursements areapproved and received by beneficiaries, and between all otberparties concerned.
2. W.B. approval on certain requests took so much time at certaininstances, which requires the set of a contingency procedures ifpossible.
3. It might be relevant if few local W.B. procedures consultants benamed to advise on administrative and logistical matters,pertaining to future projects especially for agencies dealing withsuch projects for the first time. "JIPA often sought the adviceof such consultants found in the Ministry of Education at thebeginning of the project."
Other than the above W.B. performance during the evolution andimplementation of the project was excellent.
C. Borrower's Performance:
JIPA's performance was very good, but certain difficulties arose at thebeginning in our relationship with the Ministry of Planning regardingthe financial procedures.
Other difficulties included partial negligence of certain administrativeand logistical matters that were clarified upon contacting experienced
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personnel from the Ministry of Education who have a long history indealing with W.B. projects.
The relationship between JIPA and W.B. missions was very constructiveand extremely effective. It helped us keep an open and continuouscommunication channel from the planning stage to the very end of theproject.
Follow up missions should be continued to assure accurate and flawlessimplementation of any project.
Finally, we extend our warmest thanks to all W.B. mission members who visitedJ.PA. Their advice, guidance and professional cooperation was of paramountimportance in the success of this project.
MINISTRY OF HEALTH (MOB) COMPONENT: THE NURSING AND PARAMEDICAL INTEGRATEDTRAINING INSTITUTE (NPITI)
A. Implementation of MOE component of the project (NPITI) was smooth withno constraints or difficulties. The construction of NPITI was ahead ofschedule and it was finished before the end of project life.
The number of trainees exceeded the planned number for many categories.
The main factors that facilitated easy and timely implementation ofproject activities are:
1. Experience of project management unit staff gained from administrationsimilar project (Irbid NPITI).
2. Using the same architectural designs used in Irbid institute with minormodifications.
B. Evaluation of Bank's missions who visited the country to reviewproject's progress were helpful and supportive all through the implementationphase. The main lesson learned is that infrequent change in missioncomposition facilitates continuous and easy communication between bothparties: MOH and the Bank.
C. Evaluation of Borrower's performance and lessons learned: The Ministryof Planning has done a great job as a liaison agency between MOH and the Bankand as coordinator of all project components. The PMU in the MOH has had agood experience in implementing similar project: therefore implementation ofhealth component was not faced by difficulties such as those encounteredduring implementation of Irbid Institute.
The main lesson learned is that for success of project implementation,there should be a full time project management staff who have experience intheir fields.
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D. Relationship between the Bank and the Borrower: Direct relationship wasbetween the Ministry of Planning and the Bank. The MOH contacted the Bankthrough the MOP. The relationship between MON and the Bank was through WorldBank missions who visited the country and it was a very good relationship.
THE VOCATIONAL TRAINING CORPORATION
1. BANK PERFORMANCE AND LESSONS LEARNED
Bank performance, through follow up missions, was more than satisfactoryin financial matters. All problems related to disbursement schedule,withdrawals from the account and reallocation were solved in due time andwithout delay. This made it possible to complete the components of theproject in, nearly, the planned time.
Lessons Learned:
From Borrowers point of view, the Bank should pay a greater role in thetechnical and managerial aspects of the projects it finances. This can beachieved through:
o Creating a new department in the Bank the function of which isrecommended to be the follow up of aspects other than financial.
O Providing a staff development program for the purpose of trainingBorrower's staff, and arranging seminars or workshops periodicallyto discuss with Borrower's project management staff all aspects ofprocedures etc. requiring clarification.
O Arranging for the introduction of procurement systems other thanconventional system currently used in developing countries. lheManagement Contract System is recommended for civil works.
O Development of an evaluation procedure for tenders that facilitateselection of the most suitable tender which is not necessarily ofthe lowest price.
And finally, we may suggest that successive supervision missions shouldbe timed, as far as possible, to coincide with critical events such as thecompletion of any plans or equipment lists, bid analyses, or the presentationof training studies. Material may, thereby, be reviewed and discussed in thefield without repeated and perhaps time-consuming exchanges of correspondence.
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2. BORROWER' S PERFORMANCE
VTC performance was satisfactory as the project was monitored andcontrolled adequately. The Bank was informed in due time about all activitiesthrough quarl-erly progress reports covering the period of implementation. Itis to be noted that the project was administered and managed by existingdepartments and sections within the permanent government organization.
Lessons Learned:
o The design adopted for the project could influence the design ofsimilar future projects. In fact it had already influenced thedesign of components under Human Resources Development SectorInvestment Loan.
o Completion of construction works could be faster if the ownersupervise the work through his own staff rather than engaging aprivate engineering office.
O The availability of any unit capable of managing projectimplementation should be as certained as early in projectdevelopment as practicable and the possibility of its undertakingsuch responsibilities discussed with the Borrower. Arrangementsshould be made for key personnel to participate in projectdevelopment. If it is found necessary to establish a specialunit, the Borrower should assign key staff in time to participatein the preparation and appraisal stages.
Where local staff for key project management posts may be difficult torecruit, the need for technical assistance should be noted an da search forcandidates.
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PART III. STATISTICAL INFORMATIONTABLE 1. RLATED DAM VWANS
Loan Number Year Purpose of ProjectProiect Title Approved Components StatusCr.285-JO 1972 Purpose CompletedEducation I Improve quality of education;
increase supply of skilledmanpower.24M2on_2nte2 Comprehensive Secondary Sch.I Polytechnic & Teacher Trng.Cen.TA for institutional support,curriculum development, teachertraining and a tracer system.
Cr.534-JO 1975 Purog CompletedEducation II Similar to Education I.
1 Polytechnic; 3 Comprehensiveschools; 1 Trade Training Center;i Hotel Training School; 1 RuralDevelopment Center; TechnicalAssistance for each component.
Ln.1781-JO 1979 trig0eS CompletedEducation III Similar to Education I.
Comionents5 Comprehensive Secondary Schs;I Teacher Training Institute;I Community College; 1 TrainingComplex; 8 Mobile Units;Technical Assistance for evalua-tion mechanism; computerized MISfor Min.of Educ; project institu-tions; project management support.
Ln.2068-JO 1981 Purpose CompletedEducation IV To meet critical shortage of
skilled workers and techniciansrequired for industrial develop-ment; ensure adequate supply ofvocational subject teachers;provide increased post-secondarygeneral and occupational education;contribute to increase of generalvocational secondary schools andtrade training centersl andalleviate shortages of qualifiedparamedical, nursing and mid-wifery personnel.
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TABLE 1. RELATED BANK LOANSPaae 2
Loan Number Year Purpose of ProjectProlect Title Approved Com2onent2 Status
Ln.2068-JO 1981 Comoonents CompletedEducation IV 1 new Polytechnic; Expansion of
the technical teacher trainingprogram at the Marka Polytec.;Conversion of two technicaltraining schools into communitycolleges; 4 new general voca-tional secondary schools; 1 newvocational training center; 1new nursing/paramedical ins-titute; Technical assistance(UNDP funding).
Ln.2246-JO 1983 Purnose CompletedEducation V Increase supply of skilled man-
power; provide access to basicschooling for nomadic popula-tions; strengthen Min.of Ed.Comionents15 General Vocational Secondary Schs.;3 Centralized Preparatory Schools;TA to train instructors, strengthenthe Min.of.Ed; prepare future followup projects.
SPIRZiSi
Other closed and ongoing projects for Jordan includes
1. A Sixth Education project (Ln.2378), approved in 1984/closed in May 93,expanded the facilities for compulsory and secondary school.
2. A Primary Health Care project (Ln.2531), approved in 1985/closed May 93,reorganized the primary health care system;
3. A Seventh Education project (Ln.2870), approved in 1987, isimproving the quality and expandi4g the coverage of compulsory education;
4. A Human Resources Development project (Ln.3106), approved in 1989, issupporting the first four-year phase of the Government's educat$onreform program; and
5. A Health Management project (Ln.3S74), approved in 1993, is assistingthe Government in improving the health status of the population throughenhanced primary and hospital services and reform of the Ministry ofHealth's organization, management, finances and planning capacity.
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TABLE 2. PR0JIET TIME L
Platmed Revised Actual
ActivitY Date DateDte
Reconnaissance 03/23/84 - 03/23/84
Identification 07/15/84 - 07/15/84
Preparation 09/15/84 - 09/15/84
Appraisal 01/23/85 - 01/23/85
Negotiations 09/09/BS - 091/1/85
Approval 11/12/85 -llf2/8S
Signing 11/25/85 - 11/25/85
Effectiveness 03/25/86 06/25/86 06/25/86
Completion 12/31/91 - 12/31/91
closing 12/31/92 12/31/92
Final Disbursement 05/17/93
TABLE 3. CUMUlATIVE ESTIT&TED AND ACgUAL DISBURSEMENTS(US$ Million)
I/ Although US$7.53 million was disbursed from the loan, the refund of theundisbursed balance of the special account (made on May 17, 1993) reduced theactual total loan disbursed to US$7,477,340.64. An unutilized balance ofUS$2,722,659.36 was cancelled effective May 17, 1993.
The delays in the completion dates of civil works were in relation to appraisalestimates, but all civil works were completed before the planned completion date ofDecember 19915 except for the Driver Training Yard at Hasheimieh, which was added tothe project in 1991. Construction of the training yard, however, did not delayproject closing, since tne loan closed, as schedulet, on December 31, 1992.
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TABLE 5. CIVIL W0RKR PROCURENENT SCHEDULE
DATE OF CONTRACT CIVIL WORKS
XINSTITUTION ZIR SIGNED STARTED
.OsuI 07/86 08/86 10/86
.Yajouze Extension 07/86 09/86 10/86
.Hashimieh Extension 07/86 09/86 10/86
.TTC Aqaba 08/86 11/86 12/86
.TTC AlSafi 08/86 11/86 12/86
.TTC Irbid 02/87 03/87 04/87
.Driver Training Yard 05/91 07/91 07/91
NPITI 06/87 09/87 11/87
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TABLE 6. ?LANND AND ACTUAL TECHNTCAL ASSISTAECE(Staff Months)
All planned technical assistance (fellowŽhips and specialist services) has beenprovided, although these were not always financed by the loan: VTC fellowships andspecialist services were financed from foreign grants; MOH (NPITI) specialistservices were financed through grants; and JIPA specialist services were completedunder a UNDP project.
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TABLE 7. PROJECT COSTS(US$ Million)
Estimated Costs Actual CgstsCatecory Local Foreign Total Local Foreicn Total
Civil Works 5.6 5.4 11.0 5.59 3.82 9.41
Equipment 0.8 4.7 5.5 - 3.40 3.40
Technical Assistance 1.7 0.1 1.8 0.88 0.2s 1.13
TOTAL 8.1 12 18.3 6.47 _i47 13.94
- The actual project Costs amounted to 7S% of originally planned costs due to themerging of some health facilities, which reduced the need for equipment andfurniture; and to changes in unit costs resulting from the devaluation of theJordanian Dinar during project implementation.
- Specific amounts of all the grants provided to the Government for technicalassistance have not be computed by the relevant agencies and could not be added toactual project cost information.
TABLE 8. PROJECT FTNANCING(US$ Million)
PLAN ACTUAL
Government 8.1 6.47
Bank 12 7.47
18.3 13.94
COMMENTS:
An undisbursed amount of US$2,722,659.36 was cancelled effective May 17, 1993
A/ Full-time/Part-time participants -- No. of graduates not available for 1991/92, buta total of 893 individuals have been trained since 1988.
ki Total graduates for all sessionsr not available. Enrollments for short coursestotalled 54 and the number of graduates for these courses was 33.
£1 Information for 1991/92 is combined and includes three-year apprenticeship coursesand one-year intermediate courses.
gI This figure represents two shifts.
a] The number of health tecbnician courses offered was dec=eazaa from five to two inaccordance with revised Government policy.
sJ These are all courses of short-duration, so enrollments and outputs coincide.
NCIE: Appraisal estimates refer to 199S, at full project development, while actualenrollments and outputs correspond to 1991/92.
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TABLE 11. CONEPLMICE llTH LOAN COVKpAIMM
Status of ComplianceSource of 14
Description of Covenant I Covenant Conditions | Action | Conditions I DiscussionNot Complied Pendino MetWith
Within six months of the Section j ; Xsignature of the Loan 3.01 lb)Agreement, Borrower shall 1 1 j ;make arrangements for securingforeign exchange required for I I I Ithe implementation of the j tproject. ;
To provide adequate staffing of t Section 1 t X Staffing atthe PlUsVTC and MOH Project 1 3.02 1 j I I is adequateImplementation Units. t j
Not later than six months after j Section 1 x I Audit reports werethe end of each fiscal year, 4.01 (b) | prepared annually.Borrower shall furnsih a and 4.01certified copy of the audit (c) Uiv)report to the Bank, Including anaudit of the Special Account.
Tracer system to be established | Section N.R. This covenent WaSfor Irbid NPM to be extended to 4.02 1 1 i waived as irreevantall MOH training instutitions. | since all graduates
a a a i . | areobligedtoworkI I I I . |{(and theydo) forthei I____I__ J I Govemment
Not relevant
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TABLEI 12: MISSION DATA AND STAFF INPUTS BY PROJECT STAGE
Staffweeks in the field during supervision missions reflect project time shared withfive other ongoing projects in the PHR portfolio.
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Table 1: STAFF INPUTS(Staff Weeks)
Fiscal Year Preappraisal Appraisal Negotiation Supervision Other Total
1984 .7 .71985 12.6 27.1 4.2 43.9
1986 1.4 3.2 .8 1.7 7.1
1987 6.7 6.71988 6.8 6.8
1989 2.8 2.8
1990 3.6 3.6
1991 3.7 3.7
1992 1 851
1993 85 8.5
Totals 13.3 28.5 3.2 41.0 5.9 91.9
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ANNEX 1: PERSONS PATICIPATING IN COMPLETION NISSION
MlNzstrv of Health
Dr.Abdalla M. Hamdan, Director of Planning S Research, MOHDr.Abdul Rahim Jalal, Director, Medical Education Dept.Mr.Bassam N. Monayer, AccountantMr.Qasim Nanan, ArchitectMs.Sana' Jawhari, Procurement Officer
JIPA
Dr.Zuhair All Rayed, DirectorMe. Lina Qardan, Administrative Officer
-'TC
Dr.Ahmed Atwan, Director Generalibdelazir Moh'd Ayyash -- Head of VTC Project Department, Amman
Zarka NPITI
Mrs. Malak Jaradeh, Director (Nursing Institute)
Institute for Specialized Nursina Studies (Al Bashir Hosoital)
Mrs. Huda Abu Hamdeh Quteishat, Director
UNDP
Dr.Montaser J. Oklah, Program Officer
THE WORLD BANR
Ms. P.Maughan, Population & Human Resources Division StaffMr. S. Syrimis, Consultant Vocational Trng.SpecialistMr. J. Antoniou, Consultant Architect/Implementation Specialist
MAP SECTION
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JORDANMANPOWER TRAINING I PROJECT
L JORDAN INSTIT,T. OF P,.UC ADMINISTRATIONAL TRADE TRAINNG CeNTERS
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