Document of The World Bank Public Disclosure Authorized
ReportNo. 15109-PAN
STAFF APPRAISAL REPORT Public Disclosure Authorized
THE REPUBLIC OF PANAMA
BASIC EDUCATION PROJECT Public Disclosure Authorized
FEBRUARY 29, 1996 Public Disclosure Authorized Country Department II Human Resources Operations Division Latin America and the Caribbean Regional Office CURRENCY AND EQUIVALENT UNITS
US$ 1.00 = 1.00 Balboa (B)
FISCAL YEAR
January 1 - December 31
SCHOOL YEAR
March-December
GLOSSARY OF ACRONYMS
CAS Country Assistance Strategy CEFACEI Community and Family Center for Initial Education (Centro Familiary Comunitario de EducacionInicial) COIF Center of Infant and FamnilyOrientation (Centros de Orientacidn Infantily Familiar) ERP Economic Recovery Program ERL Economic Recovery Loan FES Social Emergency Fund (Fondo de Emergencia Social) GDP Gross Domestic Product GNP Gross National Product GOP Government of Panama ICB International Competitive Bidding IDB Inter-American Development Bank IFARHU Institute for Training and Progress in Human Resources (Instituto para la Formaci6n y Aprovechamientode RecursosHumanos) IFI International Financial Institutions LIB Lirnited International Bidding MIPPE Ministry of Planning and Economic Policy (Ministerio de Planificaci6n y Politica Econ6mica) MOE Ministry of Education (Ministerio de Educaci6n) NCB National Competitive Bidding NGO Nongovernmental Organization OAS Organization of American States PAU Project Administration Unit SOE Statement of Expenses UNESCO United Nations Educational, Scientific, and Cultural Organization USAID United States Agency for International Development THE REPUBLIC OF PANAMA
BASIC EDUCATIONPROJECT STAFFAPPRAISAL REPORT
TABLE OF CONTENTS 1. INTRODUCTION...... I A. ECONOMICAND SOCIAL SETTINO ...... 1 B. THE EDUCATIONSECTOR ...... 2 (1) TheEducation System ...... 2 (2)Key Issues ...... 5 (3) GovernmentStrategy ...... 7 C. LESSONSLEARNED AND RATIONALE FOR BANK INVOLVEMENT ...... 8 (1)Lessons Learned ...... 8 (2)Rationale f Baor Involvementnk ...... ,...... 9 2. THE PROJECT ...... 10 A. PROJECTCONCEPT AND OBJECTIVES ...... 10 B. PROJECTTARGET AREAS ...... 10 C. PROJECTCOMPONENTS ...... 10 D. PROJ ECTDESCRIPTION ...... 11 (1)Component I -Improvementof Qualityof, and ExpansionofAccess to, Primaryand Lower SecondaryEducation...... ,,,..,,,,,..,,.,,.,...11 (2) Component2 -Expansionof Non-Formal Pre-School Education ., 14 (3)Component 3 -InstitutionalStrengthening of the Mvinistryof Education...... 17 3. PROJECT COSTS AND FINANCING...... 18 A. PROJECTCOSTS ...... 18 B. PROJECTF INANCING...... 19 C. INCREMENTALRECURRENT EXPENDITURES AND PROJECT SUSTAINABILITY ...... 20 D. PROCUREMENT...... 21 DISBURSEMENTSE ...... 26 F. ACCOUNTINGAND AUDITING ...... 27 4. PROJECT IMPLEMENTATIONAND MANAGEMENT...... 27 A. PROJECTIMPLEMENTATION AND MANAGEMENT ...... 27 B. PROJECTMONITORING AND SUPERVISION ...... 28 5. PROJECT BENEFITS AND RISKS...... 29 A. PROJECTBENEFITS AND ECONOMIC RETURNS ...... 29 B. IMPACTON WOMEN...... 30 C. ENVIRONMENTALIMPACT ...... 30 D. PARTICIPATORYAPPROACH ...... 30 E. PROJECTRiSKS ...... 30 F. PROGRAMOBJECTIVE CATEGORY ...... 31 6. AGREEMENTS REACHED AND RECOMMENDATION...... 31
ANNEXES...... 32 Thisreport is basedon thefindings of the appraisaland post-appraisal missions that visitedPanama in May and July, 1995,respectively. Mission members were C. Chiappe(Task Manager); M. Vera,E. Waters,and H. Yang (LA2HR);M. Mathov(OBPIE); C. Benito, J.M. Ezquivel, and B. Hermosilla(Consultants); and F. Fuentes(RUTA Social).It has benefittedgreatly from the inputsof EleanorSchreiber (LA2HR); L.Kebeck contributed to the reportat headquarters.Messrs. Edilberto L. Segura(LA2DR) and Kye WooLee (LA2HR)are the Department Directorand DivisionChief, respectively, for this operation. Peer Reviewersare C. Valdivieso(ESP) and M Potashnik(LA 3HR).
ii
PANAMA BASIC EDUCATIONPROJECT LOAN AND PROJECTSUMMARY
Borrower: The Republicof Panama.
ImplementingAgency: Ministryof Education(MOE).
Beneficiary: Not applicable
Poverty: Program of TargetedInterventions. The projectwill target the poorest 185 townships(corregimientos) in the country as defined by housing,education, health and nutritionindicators.
Amount: US$ 35 million.
Terms: Standardamortization term, grace period, and interestrate for fixed-rateUS dollarssingle currency loans with an expected disbursementperiod of 3-6 years.
Commitment Fee: 0.75% on undisbursedloan balances, beginning 60 days after signing,less any waiver.
FinancingPlan: See para. 3.3
Net Present Value: Not Applicable(see paras. 5.1-5.3)
Map: IBRDNo. 27496
Project ID: PA-7832 iii
BASIC DATA SHEET
A. GeneralCountry Data
GDP Per Capita (US$) 2,600 S 1992 Area 77 000 Sq. Km. NA PopulationEstimate 2.3 Millions 1992 Urban Population(percent of total) 54 % 1992 IndigenousPopulation (percent of total) 8.3 % 1990
B. Social Indicators Crude Birth Rate (Per Thousand) 25 Births 1992 Crude DeathRate (Per Thousand) 5 Deaths 1992 PopulationGrowth Rate 2.1 Annual% 1992 Total FertilityRate 2.9 Births 1992 InfantMortality Rate (Per ThousandLive Births) 21 Deaths 1992 MaternalMortality Rate (Per 100,000Live Births) 60 Deaths 1992 Life ExpectancyAt Birth 73 Years 1992 AdultIlliteracy Rate 12 % 1990
C. Basic EducationIndicators EnrollmentNumbers Pre-school 33,288 Students 1992 Primary(grades 1-6) 356,247 Students 1992 Secondary(grades 7-12) 201,047 Students 1992 University 63,300 Students 1993 EnrollmentRates InitialEduc. (3-4 year-olds) 5.8 % 1992 Preschool (4 year-olds) 9.3 % 1992 Preschool(Jardin. 5 year-olds) 45.5 % 1992 Primary,Gross 104.5 % 1992 Primary,Net 90.9 % 1992 Secondary,Gross 63.6 % 1992 Secondary,Net 53 % 1992 University,Gross 18.3 % 1993 Private sectorparticipation in enrollments Pre-school 33 % 1992 Primary 8.5 % 1992 Secondary 17.5 % 1992 University 9 % 1992 iv D. Basic Education Efficiencv
PrimaryEducation RepetitionRate 11.3 % 1992 Dropout Rate 1.6 % 1992 CompletionRate 90.4 % 1992
Lower secondaryEducation (Grades 7-9) RepetitionRate 11.1 % 1992 Dropout Rate 6.9 % 1992 CompletionRate 66.6 % 1992
E. Public Education ExDenditureData Total EducationExpenditures as % of GNP 5.5 % 1993 Educ. Expend. as % of Tot. Pub. Expend. 16.4 % 1993 Prescho. and Prim Educ. Expend. as % of Total Educ. Expen. 40.9 % 1992-93 Second.Expen. as % of Tot. Pub. Exp. 26.7 % 1992-93 HigherEd. Expen. as % of Tot. Pub. Exp. 32.4 % 1992-93
F. Annual Unit Costs Preschooland PrimaryEducation 290.0 $ 1992 SecondaryEducation 371.0 $ 1992
v EDUCATIONGLOSSARY
BasicEducation Two years of pre-school,primary school (gradesl-6) and lower secondaryschool (grades7-9).
CompletionRate For the nine years of basic education,the ratio betweenthe number of studentsexiting grade 9 in a givenyear T and the numberof studentsentering grade 1 in year T-9 as a close approximationof the percentageof studentsof a given cohort to completethe nine years of basic education.
Dropout Rate Percentageof studentswho abandonthe systemwithout completing the educationcycle.
EducationalAttainment Number of years of formalschooling attended by a student.
EducationalAchievement Magnitudeof achievementin any subject area, generallymeasured accordingto nationalcurriculum learning objectives.
EnrollmentRate Percentageof childrenof any age group or a givenage group enrolledin a certaineducation level.
EnrollmentRate, Gross Percentageof childrenof any age group enrolledin a grade level. Percentagesmay be more than 100because somepupils are youngeror older than the standardschool age.
IncompleteSchool A schoolwith fewer than the officialnumber of educationalgrades.
Kindergarten One year before primary(five-year-olds).
MultigradeClassroom A classroomwhere childrenof severaldifferent grades are taught by one teacher.
Net EnrollmentRate Percentageof childrenof a given age group enrolledin their correspondinggrade level.
Nursery School One year before kindergarten(four-year-olds)
Pre-School Two year of educationbefore primary school (nurseryand kindergarten).
PromotionRate Percentageof studentsenrolled in a given grade who enrollin the subsequentgrade the followingyear. vi Promotora An educatorchosen by the localcommunity, who may or maynot haveformal training. RepetitionRate Percentageof studentsenrolled in a certaingrade who are not promotedto thenext grade and who therefore enroll again in the samegrade the following year. THE REPUBLICOF PANAMA BASIC EDUCATIONPROJECT 1. INTRODUCTION
A. Economic and Social Setting
1.1 The Panamanianeconomy is amongthe more prosperousand stablein the Central Americanregion. Nonetheless,the economyis highlysegrnented, between the dynamic, internationally-orientedservice sector, whichgenerates about 75 percent of gross domestic product (GDP), and the domestically-orientedsector, characterizedby policy-inducedrigidities and low productivity. Panama'swealth has cushionedit from the worst economicconsequences of its failureto undertakestructural adjustment. Whileit has avoidedthe economiccrisis which has plaguedthe rest of CentralAmerica, Panama is now payingfor economicmismanagement in the form of missedopportunities. In 1989,the poorest 20 percentof the populationreceived 2 percentof nationalincome, the lowest share in Latin America. This group saw its relative positionworsen since 1980,when it receivednearly 4 percentof nationalincome.
1.2 Panamahas 2.3 millioninhabitants, and althoughits socioeconomnicindicators are among the best in CentralAmerica, its two percentannual population growth rate and 2.9 births per womanare the lowest in the region,while its infantmortality (21 in 1,000),life expectancy(73), and acceptanceof familyplanning are only slightlybehind Costa Rica in the six-countryCentral Americanregion. Broad publichealth and social securitycoverage are responsiblefor these favorablenational indicators. However, these statisticsmask significantregional differences within the country,and wide variationsfrom the meanwithin each indicator. The populationis multi- ethnic,with persons of European,African, Asian, and indigenousdescent, the latter group constituting8.3 percentof the populationin 1990. The indigenouspopulation is principally locatedin the provincesof Bocas del Toro, Darien, Chiriqui,and in the San Blasregion in Colon. Theseareas have generallyunfavorable socioeconomic indicators.
1.3 Analysescarried out by the Ministryof Planningand EconomicPolicy (MIPPE) indicate that in spite of gainsmade during the 1970'sand early 1980's,almost 25 percent of Panama's populationlives in conditionsof criticalpoverty with socialindicators typical of low income countries. In the ten poorest districts(out of 67), which accountfor about 15 percent of Panama'stotal population:(a) the averagehousehold earned lessthan US$ 850 per annum,about one third of the cost of the basic food basket for a familyof five; (b) life expectancyat birth is ten yearsbelow the nationalaverage; (c) the infantmortality rate ranges between50 and 75 per thousandlive births, three to four timesthe nationalaverage; (d) 40 to 70 percent of childrenaged 6 to 9 sufferfrom moderate to severegrowth retardationdue to chronicmalnutrition, compared to a nationalaverage of 24 percent; and (e) almost one third of householdsdo not have accessto a protectedwater supplyor basic sanitation(latrine). These pockets of povertyfall into one of two types:(a) more remote rural areas with limitednatural resources and agriculturalpotential, includingareas inhabitedpredominantly by indigenouspeople; and (b) peri-urban(slum) settlements. 2
B. The EducationSector
(1) The Education System 1.4 The educationsystem in Panamaconsists of pre-primary,primary, secondary and higher educationwith the followingdistribution of students:
Table 1. Panamanian School System - 1992
Students Teachers Institutions
Pre-school 33,288 1,447 894 Primary 356,247 14,249 2,744 Secondary 201,047 10,052 223 University 63,288 3,609 4
Basic educationis definedas two years of preschool,six years of primaryschool (grades 1-6) and three years of lower secondaryschool (grades7-9).
1.5 It is mandatorythat pre-school servicesbe provided,but it is not mandatorythat parents send their childrento pre-school. It consistsof nursery school(Pre-jardines de Infancia) for four-year-olds,and kindergarten(Jardines de Infancia) for five-year-olds.Jardines de Infancia are one-yearschooling programs that emphasizereadiness for readingand writing. There are about 33,000 childrenenrolled in 894 Jardinesde Infancia. About two thirds of these are public institutions,and the remainderare private. The majorityof kindergartenstudents attend classesin primaryschool buildings. About 45 percentof five-year-oldsare enrolledin kindergarten,a figure significantlylower than other Latin Americancountries of similarincome level. Pre-school studentsin Panamaare evenlydivided between males and females. The pre-schoolcoverage by provincereveals an inverserelationship between coverage and provincialpoverty (Annex 1). Thus, the current programserves mostly the wealthyprovinces and PanamaCity, with a curriculumdeveloped for implementationby highlyeducated teachers.
1.6 Panamahas developeda pilot program,the Communityand FamilyCenter for Initial Education(CEFACEI), to provide community-basedpre-school services for four- and five-year- olds. The CEFACEIsuse infrastructureprovided by the communityand a communityeducator (promotora), with or without formal training, to provide educational services to 15-21 children. At this time, there are approximately1,600 children in 88 centers locatedin rural and marginal urban areas. Up until now, it has operated onlyin communitiesthat can affordto pay a promotora. The CEFACEI program is an alternative for rural and poor areas where it is difficult to retain highlyqualified teachers. Therefore,the curriculummust be presentedto poorly educatedparents and communityeducators through clear and simplemessages conveyed through appealingeducational materials. However,the existingpre-school curriculum is presentedin excessivelytechnical terms that requireinterpretation by highlytrained teachers. The majorityof CEFACEIpromotorasare thereforelimited to child care activities. The workplaceprograms, known as Centers of Infantand FamilyOrientation (COIFs), are administeredby the Ministryof Labor, and are availablefor childrenthree to five years old in 70 centers mainlyin Panamacity 3 and other urban areas. The COIFs' principalpurpose is to providechild care for parentsworking in publicoffices.
1.7 Primaryschool is mandatoryand free, consistingof six grades and currentlyserving approximately360,000 students. There are approximately14,300 teachers and 2,700 schools. Onlyfive percentof all primaryschools are private. The primaryschool level is characterizedby highenrollment ratios, qualifiedteachers, and low student/teacherratios. The net enrollmentrate in primaryschool is 91 percent,comparable to that of other countriesin Latin Americawith good educationindicators. The gross enrollmentrate is 105 percent and also comparableto the rates of other Latin Americancountries with strong educationsystems. Theredoes not appearto be a consistentcorrelation between net enrollmentand the incomelevel of a province. However,the poorest region of San Blas has an exceptionallylow net enrollmentrate of 64.6 percent,which is probablydue to both the povertylevel and the difficultyof accessto schoolsin the area. The relativelylarge size of its indigenouspopulation has also hinderedits integrationinto the country's predominantlyHispanic culture. Three out of five Panamanianstudents who begin primaryschool do not completethe cyclein the anticipatedsix years, and the repetitionrate in the four poorest provincesis close to 20 percent. Primaryenrollment for the countryis 47.6 percentfemale while they represent49.1 percentof the populationin the age bracket. Differencesappear when analyzingthe poorest corregimientosof the country', in which femaleenrollment is 46.9 percent. At the nationallevel, the drop out rate is low, under 2.0 percent. However,when data are analyzed by corregimientos, the poorest have drop out rates around 6.0 percent. The failure rate is almost 10 percent nationally but, again, goes up to 12.3 percent for the poorest corregimientos (Annex 1).
1.8 The publicprimary student/teacher ratio is 25. The current numberof teacherson the publicpayrol can serve all the projectedprimary school-age population of 1999. Even the provincewith the higheststudent/teacher ratio at present would havea ratio of only31, usingthe current student/teacherratio per province. Ratios in eight provinceswould stillbe below 30 (Annex 1).
1.9 There is no standardsystem to evaluatethe qualityof education. The information availablesuggests that averagequality is low. This is a criticalissue sincePanama devotes a substantialamount of economicresources to education. The sectorhas one of the best paid teachingforces in the region (Annex 2) and fairlygood infrastructure,the two most expensive componentsof the primaryschool studentunit cost. An ample,perhaps excessive, future supply of teachers is ensured,with over 7,000 students currentlyat the Schoolof Education of the University of Panama and 1,000 at the teacher training institute (Escuela AIormal).
1.10 Primaryschool teachersin Panamahave good fornal trainingin subjectknowledge; about 80 percent of the teachers haveNormal Schooldegrees (secondarylevel) and almost all others have university-leveldegrees, many of them pedagogical. Almostall of them attend two-weekin-
'Panama has 9 Provinces,67 Districts,one regionand, until 1993,it had 510 Corregimientos.In 1993,the countyseat of the districtof Santiagode Veraguaswas split, and the newcorregimiento of Cantodel Llano wasformed, so todaythere are officially5 11 corregimientos.This document uses existent data from the original5 10 corregimientos. 4 servicetraining sessions every year of their career. These coursesemphasize language and math, but also includeother disparatetopics such as computersdcills, folklore dances, and civil protection, amongothers, that are indicativeof the overallirrelevance and lack of focus of a large part of the program. Such a programwould be more useful if it were more sharplyfocused on the learningneeds of students. The most extremeexample of this is the lack of pre- and in-service trainingin multigradeteaching techniques, in spite of the fact that almostthree quartersof all primaryschools inPanama have multigradeclasses. Pre-serviceand in-servicetraining in multigradetechniques would maximizethe strong pedagogicalqualifications that most teachers bringto the job, leadingto a higherquality of educationin multigradeclassrooms.
1.11 Secondary school servicesare also free, but not yet mandatory. Thereare about 200,000 students, 10,000teachers, and 223 schools;17.4 percentof the enrollmentand 39.6 percentof the schoolsare private. Secondaryeducation is organizedin two cyclesof three years each. The first cycle(grades 7-9) coversgeneral subjects and is part of the basic educationprogram. The second cycle(grades 10-12)has two tracks: (a) academic,including science and humanitiessub-tracks; and (b) professional-technical,with sub-tracksin commerce,industry, agriculture, homemaking and cosmetology.Over the last five years,the percentageof studentsin each track has remained relativelyconstant, with about 43 percentof the studentsenrolled in the academictrack and the balanceenrolled in the professional-technicaltrack (Annex 1).
1.12 Administration of the education sector is centralized. The Ministryof Education (MOE) directspre-school, primary, secondary and adultseducation. Vocationaltraining is the responsibilityof the NationalInstitute for VocationalTraining (INAFORP) reporting to the Ministryof Labor. The two publicuniversities are administrativelyautonomous. MOE establishesthe norms and proceduresfor the administrationof personneland physicalresources, and definesthe curricula,in-service teacher training and supervision.Each provincehas a regionalMOE officewith representativesresponsible for the administrationof personneland physicalresources, and a supervisorin chargeof actions relatedto curricula,in-service teacher trainingand supervision.Public education at all levelsis financedby the nationalGovernment. In the privatesector, MOE authorizesthe openingof centersfor pre-primary,primary and secondary educationand regulatestheir functioning.Private universitiesmust seek approvalto openfrom the Universityof Panama,the largestpublic institution of highereducation.
1.13 Private schooling. Panamahas a weak traditionof privateschooling. Only 8 percent of primaryenrollment is privateand, at the secondarylevel, the figureis as little as 17 percent . At pre-schoolthe situationis somewhatdifferent since the private sectorrepresents almost 30 percentof the students. Differencesbetween private and publicsector regardingrepetition and dropout indicatorsare noticeable. For the primaryprivate schools,the repetitionrate is only 0.7, whilethe publicsector figureis 10 percent. Disparitiesare also present in the drop out rates with only0.2 percent for the privatesector and 1.7 percentfor the publicsector. At the secondary level,the issue is not the drop out rate, similarin both sectors,but the failure rate, that is 11.4 percent for publicand only6.1 percent for privatesector students. The above differencessignal the inequitiesin the qualityof the education,which, in tum, rely heavilyon inputs such as educationalmaterials, well trainedteachers and good preparationfor enteringschool. 5
(2) Key Issues 1.14 Generallygood indicatorshide the skewedexpenditure pattem and management shortcomingsevident in poor qualityand inadequatecoverage. The gross enrollmentrate at the primarylevel is 105 percent,but only28 percent in preschool(ages 3-5) and 77 percent at the lower secondarylevel (grades 7-9). The skewed resourceallocation pattern for educationhas the effectof heighteningdisparities in incomedistribution. This is a commonissue in manycountries in the regionwhere a fixed share of budget resourcesis constitutionallymandated for higher education. The Bank has started a policydialogue with the Governmentto establisha more rationalallocation of budget resourcesamong the differentlevels of education,and a study of this problemhas been proposedin the project.
1.15 Education Finance. Overalleducation spending in Panamahas been consistentlyhigh in recent decades,including the period of economiccrisis in the secondhalf of the 1980s. Spending continuesto be hightoday, at 5.5 percent of GNP and 16.4 percent of total publicexpenditures. However,expenditure is disproportionatelyallocated. Higher education receives almost one third of publiceducation resources while servingonly 10 percentof publicschool students. The 1.7 percentof total publiceducation expenditures allocated to pre-primaryschools is far below intemationallevels (Costa Rica spends3.6 percent,and Mexicospends 6.1 percent). Subsidies are disproportionatelydirected to those attendinghigher education institutions. Resources are limitedfor those attendinglower leveleducational institutions, where representationof poor economicgroups is broader. Studiesin manycountries demonstrate that labor earningsare positivelyrelated to the levelof educationacquired. Therefore,the extent of cost recoveryshould increasewith the level of education. At US$ 1,400,the annualunit cost for highereducation in Panamais highin comparisonto other middle-incomeLatin Americancountries with similarsize populations. And yet, universitystudents are chargedan annualfee of onlyUS$ 50, that covers only3.6 percent of the real cost, and are given grants,regardless of need, to defrayliving expenses(Annex 2).
1.16 Poor quality and inequitable distribution of education. Qualityproblems are not as obviousin Panamaas they are in manyother countriesin the region. There is a well qualified teachingforce, and a relativelylow ratio of 25 studentsper teacher. Good textbooks are available in the market,and teacherscan select and recommendto their studentsthose that are most suitablefor the curriculum.But the qualityof educationis not evenlydistributed. Poor students cannot purchasetheir books and usuallydo not find them in school libraries. Multigradeclasses are taught by teacherswithout specializedtraining in the methodsof multigradeteaching. Since multigradeclasses are typicalof remoterural comnmunities,it is generallythe childrenof the poor who attend such classesand receivea lower qualityeducation. The consequenceis an inefficient systemin which studentstake an averageof 13 years to completethe nine-yearcycle of primary and lower secondary. When analyzing the poorest corregimientos of the country, inequity is expressedin the highestdrop out and failurerates, and lower femaleenrollment. Female enrollmentgoes down to 46.9 percent,drop out increasesto about 6.0 percent and reaches 29 percent in the 24 poorest of the 510 corregimientos. A simnilarsituation occurs with the failure rate which is less than 10 percentnationally, goes up to 12.3percent in the poorest corregimientos and is over 20 percent in 50 of them. The project will provide textbooks for poor studentsand specializedtraining and teachingmaterials for multigradeteachers targeting the 6 poorest corregimlentos.It wili also developa student achievementevaluation system (paras. 2.7- 2.13, 2.17-2.19).
1.17 Inadequate pre-primary education services. Inequitiesalso exist in the availabilityof educationalbenefits for the poor andthe disadvantaged. Enrollment rates are highat the primary level,but veryfew children have access to pre-primaryeducational services, even though early educationalexperiences have long been recognized as havingan importanteffect in improving studentperformance at theprimary level. Preschooleducation promotes school readiness, lowers repetitionand dropout rates,and improves academic skills in primaryschool. Pre-primary educationis offeredmainly in kindergartenclasses attached to the primaryschools. Non-formal models of preschooleducation have provento be highlyeffective, at a considerablylower cost than the formalmodels. But the CEFACEIs(para. 1.6) lack an appropriatecurriculum for the cultureof the disadvantaged.The kindergartencurriculum is not easilyhandled by unqualified communityeducators, and it does not provide for parentalinvolvement in the early development of the child. TheGovermment has requestedthe Bank's assistance to providelow cost pre- primaryeducation services for the poor. Theproject will expand the CEFACEIsystem of non- formalpre-primary education and provide it withchild-centered developmental activities, adequateeducational materials, and practicaltraining for the communityeducators (paras. 2.21- 2.33).
1.18 Unequal access to opportunities for the ruralpoor. Childrenin rural areas are often forced to drop out of school,unless their parentscan affordto send them to the nearest town for the upper grades of basic education. Whilethe Governmentconsiders it desirablefor all children to completethe basic cycle,many are deniedaccess because of poverty. The Government operates a programof scholarshipsfor lower secondarystudents through IFARHU, and has agreed to establisha new budget line for scholarshipsentirely targeted to the poor accordingto the project's criteria. Thus 3,500 scholarships,in additionto the current 9,500, each one for a three-yearterm, willbe awardedevery year (paras. 2.14-2.16).
1.19 Institutional weaknesses. The MOE has an adequateinstitutional structure for administrationand supervisionof the publicschool system,at the central,provincial and district levels. However, its capacityfor informationmanagement, planning and policy-makingis poor. A proposed reformof the educationsystem has been in preparationsince 1979,when a Commissionwas created for that purposeby the NationalAssembly. Last June 1995,the NationalAssembly passed the EducationLaw whichwould: (a) reinforceMOE's role in defining educationalpolicy; (b) create an advisorybody to the MOE, composedof representativesof parents, the Catholicchurch, MOE and the teachers union;(c) extendprovision of free education to two years of pre-primaryschool; and, (d) providea frameworkfor strengtheningthe role of the communityin education and decentralizingsome of the MOE's functions. These objectivesare fullyconsistent with the Government'spolicy positions as reflectedin the Bank's sector report (Report No. 13701-PAN,March 17, 1995),discussed in May 1995. The Governmenthas requestedthe Bank's assistancein strengtheningits planningand policy-makingcapacity by financinga seriesof policystudies to support the medium-and long-termreforms (paras. 2.34 and 2.35). It also plansto improveinformation management. 7
1.20 Dilapidated infrastructure. Primaryschool infrastructurecompares favorably with that of manyother Latin Americancountries, but maintenancehas been neglected. At the primary level, about 350 classroomsare severelydeteriorated and needto be replaced. About 1,700 classroomsneed varyingdegrees of repairor rehabilitation(para. 2.20). (3) Government Strategy 1.21 The developmentgoals of the Governmentof Panamaare a globallyintegrated economy and a moreequitable society, driven by sustainableprivate sector growth. The new Administration'seconomic program, "Public Policies for SocialDevelopment with Economic Efficiency",focuses on: (1) privatesector developmentand employmentcreation; (2) fiscal adjustmentand public sectormodernization; (3) poverty alleviationand human resources development;and (4) environmentalconservation.
1.22 Consistentwith the econonic program,the Government'sstrategy for mitigatingpoverty and inequalityconsists of four chief elements. The first is the introductionof conditionsthat will revivesustainable growth. In this context,the economicprogram emphasizes reform policies that willmitigate the bias againstemployment creation and reduce the high cost of the consumption basket. In addition,the incentiveframework is being alteredto encourageincreased agricultural productionand employmentopportunities in the countryside,where most of the poor are located. The secondfacet is improvingefficiency and equity in socialexpenditures, especially in education and health,targeting subsidies to the most vulnerablegroups. Third is the introductionof social safetynet mechanismslike the SocialEmergency Fund (FES), for the financingof community- generatedprojects which create employmentand providebasic socialservices to the most disadvantagedgroups in society. The fourth is institutionalmodernization and capacitybuilding of the publicsector for the efficientuse of publicresources.
1.23 The Government'sstrategy for the educationsector assignstop priorityto basic education and to ensuringequitable access for the poor to the fill benefitsof education. In line with these priorities,the short-termstrategy calls for providingopportunities for poor childrenin the rural and urbanmarginal areas to receive qualityeducational services, to achieve effectivelearning, and to completethe nine years of the basic cycle. For the same purpose,the Governmenthas decided to extendaccess for the poor to pre-schooleducation, in order to enhancetheir readinessand increasetheir success in basic education,thus reducinggrade repetitionand promotingefficiency of educationalinvestments. The projectaddresses these Governmentconcerns through the reorientationof the scholarshipprogram, the teachertraining and textbook programs,and the pre- primaryeducation program (Annex 3).
1.24 In the longer term,the Governmentis contemplatingdeeper reformsof the education systeminvolving more equitablefinancing of educationalcosts, more active participationof parents and NGOs in the managementand financingof the schools,updating the basic education curriculumto make it more relevantto the needs of society and the demandsof the economy,and developingMOE's institutionalcapacity for planningand policy-making.The projectwould support these longterm goals by: (a) financingstudies to support the long-termpolicy decisions, (b) providingtechnical assistance for the design and implementationof a Management 8
InformationSystem and, (c) providingtechnical assistance for the designand implementationof a StudentAssessment System.
C. LessonsLearned and Rationale for Bank Involvement
(1) Lessons Learned 1.25 ProjectDesign. Successfuleducation projects in Latin Americahave been characterized by simplicityand clarityin design. As this is the first Bank loan to the educationsector in Panama,it is particularlyimportant that project componentsbe well-focused.The objectivesof each componentshould be as independentand measurableas possible,with explicittimetables for key actions. These lessonshave guidedthe establishmentof the projectcomponents and the monitoringindicators of this project. The projectfocuses mainlyon basic educationcomprising pre-primary,primary and lower secondaryeducation.
1.26 Targeting. The use of povertyindexes has been proveneffective in focusinginvestments on the poor. However, whena povertyindex classifiesgeographical areas too broadly, such as states or provinces,pockets with highlyuneven poverty levels are created. Therefore,the current projectrefined the povertyindex, which originally classified districts by poverty level,so that it can classifythe corregimientosby povertylevels.
1.27 Pre-PrimarySchool. Research and Bank operationshave shownthat kindergartenand early childhooddevelopment programs can improveschool readiness,lower repetition and drop out rates and improveacademic performance at higherlevels of education. Disadvantagedgroups (rural childrenand childrenfrom familieswith low socioeconomicstatus) havethe most to gain from such programs. Reachingthe home environmentand encouragingparental involvement also appearto strengthenthe impactof the interventions.The proposedproject would expand the informalCEFACEI model (community-administeredpre-primary centers staffedby apromotora) in areas of dense populationand train rural mothersto stimulatetheir pre-primarychildren in areas of socializationand pre-schoollearning. The projectwill also financethe productionand broadcastingof radio programsto addressparents and communityeducators about child rearing practices. As these activitiesindicate, the projectwould focus exclusivelyon disadvantaged groupsand involve parents.
1.28 Textbooksand InstructionalMaterials. Experiencehas shownthat well-designed textbooksplay an importantcomplementary role in improvingstudent's academicachievement. The proposedproject would thereforeprovide textbooksin four subjectsfor the poorest 41 pereentof students at the primaryand lower secondarylevels who have no accessto textbooks, as well as teacher guidesto accompanythe texts. In Mexico and other countries,classroom librariesconsisting of carefullyselected titles have provento be an effectivelearning tool, particularlyin the multigradeenvironment. The proposedproject wouldtherefore provide a small libraryof 30 carefullyselected titles (includingdictionaries, atlases, textbooksand storybooks)to all primaryclassrooms in the country. Finally,experience has shownthat the provisionof instructionalmaterials (such as pencils,crayons, paper and games),and teachertraining in the use of these materials,leads to more activelearning and more productiveuse of the teacher's time. 9
The proposedproject would therefore providea packageof essentialinstructional materials to all of the new and existingCEPACEIs, to enhancethe qualityof pre-primaryeducation.
1.29 Monitoring and Evaluation. Experiencein Latin Americahas shownthat the viability and sustainabilityof studentachievement improvements depends in large part on the Government'smonitoring and assessmentcapacity. As in most developingcountries, official educationalachievement data collectionis almostnon-existent in Panama. The proposed project would create an EducationAssessment System to providethe necessaryinformation for improvingthe overallquality of the educationsystem. Due to its inherentlycontroversial nature, the establishmentof such a systemrequires strong institutionaland publicsupport; the proposed projectwould addressthis issue by incorporatingteacher training and a publicitycampaign for the evaluationprogram. In additionto supplyingthe data necessaryto assess systemicweaknesses, the systemwill permit an assessmentof projectimpact. Scores in year one will reflectachievement levelswithout projectinputs, and the scores in year five willreflect achievementlevels with project inputs.
1.30 Sustainability. Both the Government'sability to continuefinancing recurrent costs and the MOE capacityto managechange have determninedthe sustainabilityof projectbenefits. The proposed projectaddresses both of these issuesby: (a) adheringto a simpleproject design,which improvesthe allocationand use of existingeducational resources; (b) educatingthe public about the importanceof differentproject components; (c) relyingon communityparticipation, most specificallyfor the expansionof rural pre-primaryeducation; (d) expandingenrollment through the intensiveuse of existingeducational facilities and reorientingthe scholarshipprogram toward lower incomegroups; and (e) strengtheningthe Ministryof Education'ssupervisory capacity.
(2) Rationale for Bank Involvement 1.31 The Bank Group's CountryAssistance Strategy for Panama,discussed by the Board on February7, 1995,with the PanamaRural HealthProject, adopts a selectivestrategy focused on revivingsustainable growth and poverty alleviation.In humanresource development, the Bank's prioritiesare to expandcoverage and improvethe qualityof basic education. The strategycalls for a two-prongedapproach. The ongoingEconomic Recovery Loan would be the key instrumentto promoterestoration of a viablemedium-term fiscal framework and eliminationof policydistortions required to mount an efficaciouspoverty alleviationstrategy. The lending programshould be devotedto direct interventionsin support of poverty alleviationand human resourcesdevelopment. The Bank recentlyapproved a loan to supporta Rural HealthProject (Loan 3841-PA)which provides for health care and nutritionsupplementation for childrenand mothersin the same disadvantagedgroups targeted by the pre-primarycomponent of the proposedproject. The project is fullyconsistent with the CountryAssistance Strategy and the Bank's policyobjectives. It will focus on poverty alleviationby providingstudents in the most depressedareas of the countrywith essentialeducational inputs liketextbooks and other learning materials,and accessto the benefitsof pre-primaryand basic education. In doing so, the project will enhancethe efficiencyof the basic educationsystem and increasethe effectivenessof public expenditureson education. 10
2. TIHE PROJECT
A. Project Concept and Objectives
2.1 The objectives of the project are to: (a) improve the quality of basic education in the borrower's territory; (b) improve equity of access to preschool education and basic education for children in rural and poor urban areas; (c) expand the coverage of pre-school education through community operated non-formal administrative models; and (d) strengthen the planning, financial, supervision and policy-making capacity of MOE.
B. Project Target Areas
2.2 In order to compensate for poorer children'sdisadvantages in terms of access to better quality education,the project will focus on corregimientoswith the highest levels of poverty accordingto representativeindicators: poor housing conditions,less access to educationalbenefits, and nutritional deficiencies. The percentage of indigenouspopulation, as well as poverty-prone, overcrowded urban areas, has been taken into considerationfor targeting.
2.3 Corregimientos were chosen as targeting units so that project interventions can have the maximum effect in poor areas. Targeting, through use of a poverty index, is critical to achieving equity objectives. The project will target 185 corregimientos out of the 510, distributed over the 67 districts and covering 41 percent of the school population from grades 1 to 9 (Annex 4). An effort will be made to update the poverty index based on outcomes of a planned Living Standards Measurement Study to be supported by the Bank.
2.4 Among the 32 poorest corregimientos is the country's most populous (Belisario Porras), an extremely disadvantaged zone on the outskirts of Panama City. However, 50 percent of the school-aged basic education population lives in the first 238 corregimientos on the list (47 percent of the total number of corregimientos). As a result, a large number of sparsely populated rural corregimientos, as well as the most disadvantaged urban population centers, hold top priority positions. These also include all corregimientos with a significant proportion of indigenous inhabitants.
C. Project Components
2.5 The project has been organized into three components as follows:
(a) Improvement of Quality of, and Expansion of Access to, Primary and Lower Secondary Education (US$ 44.41 million or 77 percent of total project costs) would include: (i) the provision of training, with an emphasis on multigrade teaching techniques, for primary education teachers; (ii) the provision of textbooks, activity cards for students in multigrade classes, supplies and educational and instructional materials for basic education; (iii) redesign of the scholarship program for primary and secondary education; (iv) development and implementation of a student assessment system for basic education; and, (v) rehabilitation and maintenance of primary schools and development and carrying out of a pilot program providing 11 for community participation in the rehabilitation and maintenance of schools for Primary Education.
(b) Expansion of non-formal pre-school education (US$ 5.69 million or 10 percent) would include: (i) the expansion of pre-school education coverage through community-operated non-formal administrative models through, inter alia: (a) the strengthening of the Borrower's program for community and family centers and (b) the implementation of a pilot program for the training of the mothers in child development; and (ii) development of a public education program through mass media to reinforce the training of volunteers and parents on issues concerning pre- school education.
(c) Institutional strengthening of the Ministry of Education (US$ 7.90 million or 13 percent) would include: (i) strengthening of the planning, financial, supervision and policy- making capacity of MOE; (ii) development and implementation of a Management Information System (MIS) for MOE; and (iii) administration, monitoring, evaluation and auditing of the project.
D. Project Description
(1) Component 1 - Improvement of Quality of, and Expansion of Access to, Primary and Lower Secondary Education (US$ 44.4 million or 77 percent of total project costs).
2.6 The objective of this component is to assist the Government in improving the quality and equity of basic education by providing textbooks and teaching materials for the poor and rehabilitating infrastructure where necessary. In addition, it will provide in-service teacher training in multigrade techniques, and reorient the existing scholarship program to target poor students. These improvements will: (a) help reduce the inequalities in the content and quality of public education; and (b) expand access to secondary school for the disadvantaged.
2.7 Subcomponent 1A: In-service Teacher Training (US$ 2.52 million). All multigrade teachers, about 3,800, will receive training in multigrade methodology and the use of classroom libraries and activity cards. The training offered seeks to counteract the limitationsor lack of training of teachersworking with more than one grade level simultaneouslyand to enhance teachers' capacity to make good use of learningmaterials and school libraries. A set of technicalmaterials and teaching activitieswill be prepared to contribute to the training of teachers handling several grade levels at the same time; in the optimumuse of activitycards and classroomlibraries; in effectivedistribution of availabletime; in better use of school and non-schoolspace; in the use of strategiesthat include communitymembers in educationaland curricular efforts;and in the use of active techniques and the developmentof varied activitiesthat help students to learn independently.
2.8 The teaching function of provincial and national supervisors will be consolidated to ensure training as well as guidance and monitoring of daily practices, in order to institutionalize the proposed actions. A group of 7 national supervisors and 148 provincial supervisors will form the technical group in charge of training and monitoring responsibilities of about 3,800 teachers. 12
2.9 Two courses will be given in two phases: an intensive course during the vacation period, with 30 classroom hours and 15 hours outside the classroom, plus a feedback session on the sixth day; and a follow-up course comprised of seven Saturday sessions during the school year, six classroom hours each session. These courses will be mandatory for supervisors and active teachers. Each educator will participate in an additional, optional course, based on demand. The multigrade teaching course will also be given to future teachers before they graduate from teacher training. The mandatory courses will be: multigrade, teaching methods for specific subject matters and a third course, to be determined according to specific needs. Efforts will also be developed to strengthen group working techniques, specificallythe preparation and implementation of activity charts, resources and basic teaching materials (experience charts, felt boards, numbers box, flash cards, pocket charts, logic blocks, etc.).
2.10 A specific workshop will be offered to 80 teachers on the preparation of activity cards to help children construct their own individual and/or group learning program and to collect a set of cards that can later be printed and distributed to all multigrade teachers. Participants will be selected by provinces among multigrade-class teachers who have demonstrated relevant abilities and skills. A library course will also be given to multigrade-class teachers and to lower secondary school teachers. To supplement this training course, classroom research and reading encouragement will also be planned (Annex 5).
2.11 Subcomponent IB: Provision of Textbooks and Teaching Materials for the Poor (US$ 5.67 million). Textbooks and classroom libraries will be provided under the project. Forty-one percent of all primary and lower secondary students will be provided with textbooks in Spanish, mathematics, social studies and science at the rate of one per student. Only mathematics and reading-writingtextbooks will be suppliedto the first two grades. After third grade, science and social studies texts will also be included. Beneficiaries will be students from the poorest corregimientos, as determined by the poverty index created for the project. Materials will be school property on loan to the students. (Annex 4). Classroom libraries (containing reading and reference books) will be delivered to primary and lower secondary schools of the targeted corregimientos. All multigrade schools in the country will be provided with textbooks for the students and classroom libraries.
2.12 Books and educational materials to be supplied to schools will be purchased on the domestic and international markets. They will be evaluated to select those that best meet selection criteria and to determine the changes that winning publishers should introduce in the special versions to be distributed under the plan. Under the framework of the Project, the committee staffs will receive training in textbook evaluation.
2.13 Activity cards guide the student in personal work and group exercises, and teach him/her to consult the classroom library and conduct self-evaluations. Each classroom will also be provided with a set twice during the life of the project (Annex 6).
2.14 Subcomponent 1C: Reorientation of the Scholarship Program (US$ 12.58 million). IFARHU will establish a new budget line for scholarships entirely targeted to the poor according 13
to the project's criteria. Thus, 3,500 additional scholarships, to the current 9,500, each one for a three-year term, will be awarded per year. During negotiatioinsMOE provided the document reflecting the commitment toward reorientation of the criteria to assign scholarships.
2.15 The majority of IFARHU's scholarships have been awarded only on the basis of academic performance criteria (36 percent of the scholarships go to the best students and 42 percent are awarded through a combined index in which poverty is not heavily weighted). In 1994 IFARHU gave about 1,500 scholarships to primary students and about 8,000 scholarships to secondary students. Scholarships for secondary students are usually given to students already registered in a school. This modality of operation does not provide adequate incentives for sixth-grade students in the poorest corregimientos, who are the most likely to drop out. It must be noted that only 151 corregimientos of the 510 in the country have secondary schools. Since the scholarships are given to those who have already decided to continue schooling, the program is failing to deter drop out. Under the project, 800 new scholarships of US$ 315 each will be awarded every year, targeted to sixth-grade students in the corregimientos of the project. The scholarship will cover living expenses for the student, who must relocate in order to attend a lower-secondary school. The program will be advertised in schools before the end of the school year, in order to deter post-primary drop out.
2.16 Under the project, IFARHU will also award about 2,700 new primary school scholarships per year targeted to the corregimientos under the project. Again, the objective is to target the students most likely to drop out due to poverty. The main criteria for selection will be that the students live in the selected corregimientos. For primary and secondary scholarships, girls will be given a share no less than 60 percent of the total amount. This will help to reduce the inequalities in female enrollment in the poorest corregimientos (see paragraph 1.7). This subcomponent will be financed entirely with resources from counterpart funding.
2.17 Subcomponent 1D: Development of Student Assessment System (US$ 2.29 million). Achievement tests will be prepared, validated and administered for the four basic subjects: Spanish, mathematics, natural sciences and social sciences. Starting in 1996, these tests will be administered to a random nation-wide sampling of 10 percent of third and sixth grade students in primary school and of ninth and twelfth grade students in secondary school. In even years testing will be administered to third and ninth grade students, and in odd years to sixth and twelfth grade students. The results of achievement tests and social and emotional development tests will be used by students, teachers and parents to improve curricular implementation. The assessment will be carried out annually starting in 1996, with samples from 30 schools from all of the country's provinces.
2.18 A test of school readiness in terms of cognitive, emotional and psychomotor skills will be developed and validated for children entering the first grade of primary school. This test will be administered to a stratified random sample of 5 percent of children entering first grade, beginning in 1998. The data obtained will be used to assess current preschool education programs and those financed by the Basic Education Project. Beginning in 1999, tests will be developed and validated to measure social and emotional variables that complement the assessment of students' 14 achievements in primary and secondary schools. These tests will be administered to the same sampling of students who take the achievement tests.
2.19 In order to better understand the factors that affect students' academic achievement, studies will be performed to correlate the contextual variables of the student, teacher, school and community with the outcomes of achievement and social and emotional development tests. This research will use surveys and interviews that will be administered in parallel with achievement tests, beginning in 1996. A system to assess Educational Quality provides data that should be used to provide feedback on the educational system, thereby indicating any failures that may be found, and to improve education. It is therefore important to ensure that the data produced are being properly disseminated and are having a positive effect on the educational system. This work will be performed beginning in 1997 and each year thereafter (Annex 7).
2.20 Subcomponent lE: Rehabilitation of Educational Infrastructure (US$ 21.34 million). Classroom repairs will constitute the bulk of the project work, in addition to the repair of existing complementary rooms. About 350 severely deteriorated classrooms in primary schools will be replaced by new ones. It is estimated that about 1,700 primary classrooms will be repaired. A pilot program for school rehabilitation and maintenance under community responsibility will also be financed for some 15 schools. The subcomponent includes provision and maintenance of school furniture. The subcomponent will be executed by the Social Emergency Fund (FES) under contract with the MOE. The FES is a Government agency, under the direct authority of the Ministry of the Presidency. The institution was created in May 1990. In January 1993, FES was given indefinite tenure. The largest share of FES spending has gone to projects that include rehabilitation of schools, medical facilities and water and sanitation. It has previous experience in promoting community involvement. The contract will be signed as a condition for effectiveness (para. 6.2(e)). Priorities will be set by the Ministry and resources will be transferred according to schedules for the completion of the works.
(2) Component 2 - Expansion of Non-Formal Pre-School Education (US$ 5.69 million or 10 percent).
2.21 This component aims to: i) expand coverage of non-formal pre-school education among the poor to increase national coverage from 45.5 percent to nearly 75.0 percent (from 26,000 to 43,000 for five year-olds) and ii) improve the quality of non-formal pre-school education. Coverage expansion will be based primarily on the CEFACEI (Family and Community Education Center) model. At the same time, a pilot mother-to-mother program for rural areas of scattered population will also be developed (Annex 8).
2.22 Subcomponent 2A: The CEFACEI Program (US$ 5.26 million). The project aims to open 400 new CEFACEIs, and serve approximately 20,000 pre-primary-age children over the life of the project. A pilot Mother-to-Mother program will also be implemented, to benefit approximately 1,800 pre-primary-age children in dispersed, rural communities. The quality of non-formal pre-school education will be improved through intensive training of MOE supervisors and promotoras, the distribution of specially designed manuals for promotoras, 15
children and parents, and the transmission of radio programs to reinforce the program and encourage healthy child rearing practices.
2.23 A pyramid strategy will be developed for training and supervision of the program, to facilitate the full involvement of the national, regional, provincial and local levels. The national team will be trained by national and international technical assistance to design the manuals for trainers andpromotoras (one manual for trainers, one for promotoras, one for parents and one for each child). The national team will train pre-school supervisors at the provincial level. Both teams share the responsibility for conducting meetings in each community targeted by the project, to convey the importance of pre-school education to parents, and form a local CEFACEI Parents' Association.
2.24 The Parents' Association will be responsible for: i) finding a location for the CEFACEI; ii) collaborating in the opening and functioning of the CEFACEI; iii) selecting the promotora according to a profile specified by the Directorate of Initial Education; and iv) paying the promotoras with the funds received from MOE every three months, the amount determined by the number of children attending the CEFACEI. Thepromotora will be paid US$90 per child per year. Implemented gradually, the program will open 100 new CEFACEIs per year. The financial resources to pay the promotoras will be provided by the Government as counterpart funds to the Bank loan. The financial resources will be transferred from the Ministry to each Parents' Associations. For that purpose, each Association must register at the MOE to obtain legal permission to receive funds and pay the promotoras.
2.25 Subcomponent 2B: Mother-to-Mother Pilot (US$ 0.43 million). In rural areas with scattered population mothers will be encouraged to establish teams, under the guidance of a Mother-Leader, and with the help of educational material and radio programs to improve their child-rearing practices. Training of the mother-leaders will be the responsibility of the supervisors and pre-primary education specialists in each provincial office of MOE. Ten regional MOE supervisors will be trained for 10 days in year 1 and ten days in year 2 of the project. They will train the 120 mother-leaders, chosen by the participating mothers, for seven days each. Thirty mother-leaders will be trained each year. Each in turn will train 10 mothers on a bi-weekly basis. It is estimated that each participating mother is raising an average of 2 children. Therefore, 2,400 children will benefit directly from the project.
2.26 As in the case of the CEFACEIs, a pyramid strategy will be developed for training and supervision of the program, to facilitate the full involvement of the national, regional, provincial and local levels. Interested communities will then select a woman to be trained as a mother leader. Each supervisor will work with a group of about 15 mother leaders throughout their two-year tenure. He/she will give an initial six-day training workshop, focusing on the following topics: i) the circumstances of childhood in rural areas and in particular, in each community where the mother leaders reside; ii) group dynamics; and iii) analysis of the Mother-to-Mother Program, including materials and implementation. The supervisor will supplement this initial training with four more three-day workshops over the two-year period, and periodic monitoring of the progress of each mother leader. 16
2.27 Each participating mother will be instructed in a series of thematic units and provided with a set of manuals for use with her children. Implementation of the Mother-to-Mother Program will be gradual, concentrating efforts in only two provinces: Veraguas and Chiriqui.
2.28 Mother-leaders will be paid on a per mother-participant basis, that is, they will receive US$ 32 per year for each participating mother they train in bi-weekly meetings over a ten-month period. Funds to pay the mother-leaders will be transferred from the central office of MOE to the bank accounts of the regional MOE offices. MOE's supervisors will monitor the number of mothers being taught, in order to ensure appropriate payment of the mother-leaders. The financial resources to pay the mother-leaders will be provided by the Government as counterpart funding for the Bank loan.
2.29 The current curriculum will be revised to stress simple problem-solving, self-care and school readiness skills. The emphasis will be on an open, flexible curriculum focused on the child with parental participation. The strategy for producing a simple core curriculum will be to focus on making each concept operational in training manuals. Two types of manuals will be produced: manuals to train the promotoras in the use of the new curriculum, and manuals for the promotoras to use in teaching. The manuals will be adapted to address rural mother-leaders and mothers participating in the program, both of which have very little formal education. The adapted manual will be a simplified, shorter version, relying heavily on drawings and visual messages. Thus, a total of four manuals will be produced. A special working group will be formed within the Directorate of Initial Education to produce the manuals with national and international technical assistance. The project will finance the technical assistance to produce the manuals.
2.30 Radio Programs. The current pre-primary programs, both formal and CEFACEI, fail to involve parents, which is crucial, as the dominant share of intelligence develops in early childhood. Radio programs are an alternative to involve parents and enhance their ability to create learning situations for their children, and it does it in a simple and appealing way. Radio programs also provide promotoras and mother-leaders with effective reinforcement of the training and to the written educational materials they will receive. Radio is accessible to large numbers of the poor. Radio is part of their daily life, especially in remote areas. Radio is used in Panama to help families to communicate messages, for example, messages from travelers from remote rural areas to relatives in the towns. Radio is not as expensive as other media, like TV. Another advantage is the fact that the country, as almost all countries, has human resources acquainted with the production of messages for radio.
2.31 A set of 40 radio programs of 5-7 minutes each will be produced by a team of local and international consultants during the first and second year of the project. The content of the programs will be mainly instructions to perform a set of activities geared toward selected objectives of early childhood development.
2.32 Local radio stations from the provinces are willing to broadcast the programs. It is expected that some 11 small radio stations will participate in the project. Most of the stations will provide the service free of charge. Each program will be broadcast twice every week and, at the end of the 40 thweek they will be broadcast again. 17
2.33 Integration of Health. Nutrition and Education Services. All of the pre-school children who will benefit from the project will be eligible to receive the nutrition and health services provided under the Rural Health Project financed by the Bank (Loan 3841-PA). This Project provides nutrition counseling, health monitoring and supplemental feeding in case of malnutrition diagnosed at the community level. To accomplish these objectives a health promoter addresses parents and other community members involved in educating children. The CEFACEI promotoras, the children and their parents will benefit from the counseling and the supplemental feeding in cases of diagnosed malnutrition.
(3) Component 3 - Institutional Strengthening of the Ministry of Education (US$ 7.9 million or 13 percent).
2.34 Subcomponent 3A: Development of Planning and Policy-Making Capacity (US$ 0.34 million). The project will provide technical and financial assistance to MOE in order to strengthen planning and policy-making capacity. Studies and technical assistance related to institutional and managerial reform will be financed, specificallyaddressing: (a) how to foster community participation; (b) optimization of budget resource allocation among the different levels of education and, (c) delegation of MOE functions to provincial offices. These studies and technical assistance should help to shape the broad objectives of the new Education Law, regarding community participation and decentralization, and should make recommnendationsfor a more equitable distribution of resources, outline measures to improve internal efficiency, and explore ways of raising additional revenue. The findings will be discussed with the Bank and in a series of seminars in Panama, which will formnthe basis for future policy decisions. The terms of reference, including the dissemination methods, will be included in the Operations Manual. The project finances the design and implementation of a social communication campaign to support meeting the objectives of the project. Terms of reference will be included in the Operations Manual.
2.35 Subcomponent 3B: Development of a Management Information System (MIS) (US$ 5.21 million). This subcomponent will finance the design, testing and introduction of an MIS to assist and improve sector planning and personnel management. The MIS will include: human resources administration, budgeting, accounting, purchasing, warehouses inventories, education statistics and school map. Technical assistance will be provided to strengthen the technical capacity of the units in charge of statistics and personnel. The subcomponent will finance the training of MOE staff for implementing the new procedures and using the software for each of the main areas mentioned above. It will also finance the acquisition of computers and the establishment of a network. 18
3. PROJECTCOSTS AND FINANCING
A. ProjectCosts ProjectCost Summary (USSmifion) A. Improvementof Quality and Access in BasicEducation In-ServiceTeacher Training 2.15 0.12 2.27 EducationalMaterials 1.14 3.90 5.04 AssessmentSystem 1.18 0.89 2.07 Scholarshipsfor poorstudents 11.67 - 11.67 PnrinarySchool Rehabilitation 17.49 0.85 18.34
B. ExpandingNon-Formal Preschool Expandingthe CEFACEIProgram 4.07 0.76 4.83 Mother-to-MotherPilotpram 0.24 0.15 0.39
C.Institutional Strengthening ManagementInformation System 1.89 2.79 4.68 Dev.Planning & Supervisioncapacity 0.21 0.10 0.31 PolicyMaking Studies - 0.58 0.58 -oiest& Mana8ement Coordination ~~1.18 0.35 1.53
TOTALBaseline Costs 41.22 10.47 51.69 PhysicalContingencies 2.08 0.52 2.60 PriceContingencies 3.08 0.64 3.71
3.1 The total projectcost, includingphysical and price contingencies,is estimatedat US$ 58 millionequivalent, net of taxes, of whichan estimatedUS$ 11.6 million(20 percent) is foreign exchange(Annex 9). Investmentcosts are 67 percentof base costs and incrementalrecurrent costs amountto 33 percentof base costs. Project costs were estimatedat December 1995price levelsand includephysical contingencies of 10 percent for civilworks and 5 percent for goods and services. Price contingenciesare based on a projectedintemational inflation rate of 2.6 percentper year during the life of the project. Theserates have been appliedto both local and foreigncosts as Panama's currencyis directlylinked to the US dollar.
3.2 Estimated costs of equipment,furniture, textbooks and didacticmaterials are based on unit prices of goods procuredrecently by MOE. Estimatesfor technicalassistance and studiesare based on currentrates for local and foreignexperts. Cost estimatesfor training,and operating costs are based on current costs or costing standardsused by MOE. Estimatedconstruction and rehabilitationcosts of schoolsthroughout the countryare based on current processesthat derive from periodiccost analysesfor similarstandards of constructionin correspondingfacilities. 19
B. Project Financing
3.3 The WorldBank and the Governmentof Panamawill finance the project. The following table lists the proposed financialarrangements:
(US'SmiOion) a A. Improvementof Qualityand AccessIn BasicEducation In-ServiceTeacher Training 2.52 - 2.52 EducationalMaterials 5.67 - 5.67 AssessmentSystem 2.26 0.03 2.29 Scholarshipsfor poorstudents 12.58 12.58 Priry SchoolRehabilitation 16.74 4.63 21.34 -. _4_4 V B. ExpandingNon-Formal Pre-school Expandingthe CEFACEIProgram 1.12 4.14 5.26 Mother-to-MotherPilot Progr. 0.29 0.14 0.43 C. InstitutionalStrengthening ManagementInformation System 3.80 1.40 5.21 Dev.Planning & Supervisioncapacity 0.34 - 0.34 PolicyM4aking Studies 0.63 - 0.63 ProjectCoordination & Marnagement 1.65 0.06 1.71
Note:Due to rounding the nwnbers may not add up.
3.4 The Governrmentof Panama has requested a single currency loan with standard amortization term, grace period, and interest rate for a fixed-rate US dollar single currency loan because: (a) The US dollar is the Panamanian tender and therefore use of the dollar would avoid foreign exchange risk; (b) the fixed rate offers a longer term predictability vis-a-vis LIBOR. Panama is eligible for single currency loans under the expanded SCL program. Including this loan, Panama will have financed $35 million of its $180 million FY96-98 lending program on single currency loans, within the SCL volume guidelines established by the Board.
3.5 Revolving Fund in Local Currency. A revolving fund would be opened in the name of the project, with an initial deposit from the Government as its up-front participation to the project financing.As a conditionfor effectiveness,MOE willprovide evidencethat the revolvingfund has been establishedand that the depositof counterpartfundsin the amount of $250,000 has been made (para. 6.2(C)). 20
C IncrementalRecurrent Expenditures and ProjectSustalnability
3.6 During the implementationperiod, the projectwill add an averageof about USS 1.3 millionper year to the recurrentcost budgetof MOE. Theseincremental recurrent costs would be generatedmainly by fees forpromotoras and rural preschoolchildren, operation and maintenanceof infrastructure,equipment furniture, and officesupplies. Recurrentcosts generated by scholarshipsfor rural poor studentswill be coveredby the educationsecurity fund, Seguro Educativo. The incrementalrecurrent costs would be financedby the Government. The Recurrentcosts under the project, in December1995 US dollars,are estimatedas follows:
3.7 The effect of the recurrent costs on MOE'sbudget is smalland could be easilyabsorbed by MOE. Based on MOE'sordinary budget for 1995 (excludinginvestments and the Seguro Educativo)of about USS214.6million, and the forecastbudget increments equivalent, at least, to the forecastannual growth of GDP (3 percentin 1996,3.5 percentform 1997 through 2000), impactof these costs on the MOE ordinarybudget would be 0.1 percent,0.4 percent,0.5 percent, 0.7 percent,0.8 percent,for the successiveyears of implementationof the project. After project implementation,2001-2010, a yearly averageof recurrentcosts generatedby the project are estimatedat US$2 million. This figureamounts to 0.7 percentof the MOEs recurrent cost budget (Annex 10). With economicgrowth forecastto grow at a minimumof 3.5 percent annuallyover the medium-term,the projectshould not presentan undue financialburden on the Governfment.
Incremental Recurrent Costs (USS million)
Category 1996 1997 1998 1999 2000 Total Feesfor Promoters(Pre-school Education) 0.28 0.54 0.82 1.12 1.52 4.28 Scholarships(Primary and Lower Secondary) 0.98 2.02 3.12 3.19 3.27 12.58 Operatig & Maintenance(classroom, eq., MIS) 0.02 0.45 0.46 0.62 0.63 2.18
T.TL.-.1.:-,1,,0...... 5.42 4
3.8 The impactof the proposed projecton total educationalexpenditures and the abilityof the MOE to financeand sustainthe resultingincrease in recurrentcosts was carefullydiscussed with the Governmentduring appraisaL At negotiationsthe Governmentagreed to include: () in MOE's budgetseparate lines coveringfeesfor pre-primarycommunity educators (promotoras and madres ifderes)and operatingand maintenancecosts of the schools included under the project; and (ii) in IFARHU's budgeta separateline coveringthe scholarshipsfor Primary and LowerSeconday students. As a conditionfor effectiveness,the Governmentwill agree with the WorldBank toprovide evidencethat a budgetline has been includedin the Government's 1996 budgetfor promotoras,scholarships, and operatingand maintenancecosts (para 6.2(b)). 21
D. Procurement
Procurement Arrangements (US million) ; . g ICC ;.; :nB- QtB OTAL ::., ::. -: ~~.... : -.:-. : . :. ::...... ;.f-
CivilWorks 11.6 7.1 18.7 (9.2) (5.6) (14.8) Equipmentand Furniture 3.3 1.02 - 4.3 (3.3) (1.0) (4.3) Trining . 3.4' 3.4 (3.4) (3.4) EducationalMaterials 5.4'4 1.1 0.6' . 7.1 (5.4) (1.1) (0.6) (7.1) T.A., Consultants' Servicesand - 5.4' 5.4 Studies (5.4) (5.4) Scholarships& PromotorasFees - - - 16.9 16.9 IncrementalOperating Costs - - - 2.2 2.2 TOTAL ~~~~~~~~~8.717 1759.5S,0 'r' ' ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~..(8.7) (100.3) 1.0 ''...... : 350
Figuresin parenthesesare the respectiveamounts financed by the Bank. Dueto roundingthe numbersmay not add up. ICB - InternationalCompetitive Bidding; NCB - National CompetitiveBidding. I IncludesUS$5.0 million equivalent, for lumpsum, fixed-priced contracts for worksvalued less thanUS 250,000,to be awardedon a nationalshopping basis, and US$2.1 million equivalent for directcontracting for worksvalued less than USS 50,000 in scatteredand distant rural areas. 2 Shoppingprocedure, includes $870,00 school furniture, $40,000 office equipment, $60,000 vehicles, and directcontracting $30,000. 3 Transportationand per diem for trainees.Not subjectto procurement. 4 IncludesUSS 3.0 millionequivalent for textbooksand teachers'guides and US$ 2.1 millionequivalent for classroomlibrary books to be procuredfollowing ICB 2-stage procedures. Printingservices. Printingservices through shopping procedures. 7 Includescontracts for shortand long-term consultants in PAU.
3.9 The project would include procurement of civil works for rehabilitation of school infiastructure. The project would also finance the procurement of textbooks, teacher guides, educational materials, training, school furniture, vehicles, and office and computing equipment. Procurement of works and goods will be carried out according to the guidelines for procurement under IBRD Loans and IDA Credits of January 1995. In addition, the project would finance studies and technical assistance services. For the selection of consulting services the project 22 wouldfollow the guidelinesfor use of Consultantsby WorldBank Borrowers of August 1981. As discussedbelow (para. 4.1), the PAU in the MOE willhave overallresponsibility for procurementunder the projectand the unit's staffwill include a suitablyqualified Procurement Officer(Annex 11) who will have specificresponsibility for the preparationof standardbidding documentsand the implementationof procurementaccording to the Bank's guidelinesand the OperationsManual. In addition,for civilworks MOE willenter into an agreementwith the Social EmergencyFund (FES), whichalso has the institutionalcapacity to ensure that all procurementof smallerworks is executedin accordancewith the Bank's guidelines. 3.10 For the procurementof goods under ICB and ICB-2 stage, the Bank's SBDsof January 1995will be used, with minimalchanges acceptable to the Bankto address country-and project- specificissues. For the procurementof works and printingservices under nationalcompetitive bidding(NCB), SBDsbased on similarSBDs of the Bank for such procurementwould be used, with modificationsas agreedwith the Bank. For contractingof consultingfirms, the Borrower willuse standardletters of invitationas agreedwith the Bank and, as appropriate,the Bank's standardforms of contractfor Consultantsof June 1995,for complextime-based assignments and lump sum contracts. Smallcontracts with firmsor individualconsultants would be contracted under standardshort forms of contractto be agreedwith the Bank. For carryingout procurement activities,the projectwould includeall relevantprocedures in its OperationalManual. At negotiationsthe MOE submitteda draft PA U OperationalManualfor Banik'sreview. As a conditionfor effectiveness,the MOE would agree toput into effect the OperationalManual (includingall standardbidding documents) as agreedwith the Bank (para.6 2(d)).
3.11 Civil Works. Civilworks contractswould consist mainly of repairs and substitutionof classroomsand rehabilitationof schoolsamounting to approximatelyUS$ 18.7 millionequivalent. ICB is not expectedbut wouldbe used whenpackages equal or exceedthe equivalentof USS 1.5 million. Contractsfor works wouldbe packagedwhenever possible in packages of more than US$ 0.5 millionequivalent and would be awardedfollowing NCB proceduresup to an aggregate amountof US$ 11.6 millionequivalent. For works valued at US$ 250,000equivalent or less but more than US$ 50,000 equivalent,lumpsum, fixed-price contracts willbe awarded on the basis of at least three quotations,up to an aggregatelimit of US$ 5.0 millionequivalent. For rehabilitation or minorworks in scattered,distant rural areas, direct contractingwith local contractorsmay be used for contractsvalued under US$ 50,000 equivalent,up to an aggregatelimit of US$ 2.1 millionequivalent.
3.12 Goods and Equipment. The projectwould financecontracts for goods with a total value of US$ 4.3 millionequivalent. When possible, goods (includingcomputer hardware and software)would be packagedin contractsof at least US$ 250,000 equivalent,and be awarded followingICB procedures. In the evaluationof bidsunder ICB, a marginof preferencein accordancewith Appendix2 of the Bank's Guidelinesmay be granted to domesticmanufacturers. Awardswill be madeby individualpackage or by groups of packages,depending on the combinationthat producesthe lowest total bid evaluatedcost. Contractsfor goods costing US$ 50,000or less would be procuredby localor internationalshopping procedures on the basis of price quotationsfrom at least three qualifiedsuppliers, up to aggregateamounts not to exceed: (i) USS 870,000equivalent in the case of goods (otherthan vehiclesand computer hardwareand 23
software); (ii) US$ 60,000 equivalent in the case of vehicles; (iii) US$ 40,000 equivalent in the case of computer hardware and software; (iv) US$ 600,000 equivalent in the case of printing services. Vehicles will be purchased on the basis of price quotations from suppliers with service and maintenance facilities in Panama. The request for quotations for these purchases should only specify the type of vehicle and the performance requirements and not a particular vehicle manufacturer. School furniture estimated to cost less than the equivalent of 2,000 per contract and up to an aggregate of 30,000 equivalent or less may with the Bank's prior agreement be procured under direct contracting.
3.13 Educational Materials. The project would finance about US$ 7.1 million of educational materials. Separate tender packages of textbooks, teachers guides, classroom libraries and printing services will be procured. Contracts for textbooks, teachers guides and classroom libraries, with a total value of approximately US$ 5.1 million equivalent, would be awarded under ICB two-stage bidding procedures in accordance with paragraph 2.6 of the Bank's Guidelines. Bids for these materials will be called using bidding documents that describe the two-stage procedure and are satisfactory to the Bank. At the first stage, the Borrower will invite unpriced technical proposals on the basis of a conceptual design and technical specifications stating minimum basic requirements. Samples of textbooks will be required with the technical proposal. During the evaluation of these technical proposals, MOE will ask participating editors/publishers for technical clarifications and will allow bidders to adjust their proposals to respond fully to the requirements of the bidding documents. MOE will qualify those bidders whose proposals meet the evaluation criteria or who are willing to modify their proposals to meet the final specifications. At the second stage, bidding documents, amended as required to reflect understandings reached with each of the bidders, will be issued to the qualified bidders, inviting them to submit final priced proposals. The Borrower will award contracts by packages, on the basis of the criteria stated in the bidding documents. Contracts for printing services for other educational and assessment materials, valued at less than US$ 250,000 equivalent, may be awarded following NCB procedures acceptable to the Bank up to an aggregate amount of US$ 1.1 million equivalent.
Training, Technical Assistance and Studies
3.14 The project would finance approximately US$ 8.8 million equivalent to provide training, technical assistance and studies. It would also finance contracts of short and long fixed-term consultants in the PAU. MOE would employ consultants whose qualifications, experience and terms of reference shall be satisfactory to the Bank. The project will finance cost of transportation and per diem for participants in training and monitoring. During appraisal broad terms of reference for training programs, technical assistance and studies to be financed under the project were reviewed and agreed with MOE. For contracting of these services MOE would prepare specific terms of reference for each consultancy and use the standard invitation packages and contracts agreed with the Bank (per para. 3.10). 24
Costs Not Involving Procurement
3.15 Approximately US$ 22.1 million of project costs, or approximately 38.0 percent, would not involve procurement and include fees for promotoras, mother-leaders (community educators), scholarships for students and incremental operating costs financed by MOE and training costs (transportation and per diem) financed by the Bank.
Review by the Bank
3.16 Prior review of procurement procedures and documentation by the Bank would be required for all tender packages and related contracts under ICB, ICB-2 step and LIB procedures. The Bank would also review the first two NCB tender packages and related contracts for civil works and printing services, regardless of value, and works packages and related contracts valued at US$ 500,000 equivalent or more. It is expected that this review would cover nearly 54 percent of contracts by value. All other contracts would be subject to review (ex post) by Bank supervision missions on the basis of random sampling. For these contracts, MOE will follow the procedures stated in Appendix 1, paragraphs 3 and 4 of the Bank's procurement guidelines. All TORs for technical assistance and studies would be subject to ex-ante review by the Bank. Documentation for contracts with consultants' firms valued at or above US$ 100,000 and for individual consultants, valued at or above US$ 50,000, as well as those of a critical nature, sole source contracts, and amendments raising values above these thresholds, would also be reviewed ex-ante by the Bank. All supporting documentation for these contracts would be retained by the PCU. During appraisal it was agreed that procedures for ex-ante review to be followed by executing agencies would be incorporated in the Operational Manual.
Special Provisions in Procurement
3.17 Country Procurement Assessment. A November 1993 assessment by the Bank of Panama's procurement procedures indicates that they are not fully compatible with the Bank's procurement guidelines. At negotiations agreement was reached that the principles indicated below would govern all procurement of goods and services (para. 6 1 (d)).
A. The following principles of procurement shall expressly govern all procurement of goods, works and printing services for educational and assessment materials under International Competitive Bidding:
1. Foreign bidders shall not be required to: (a) have a local representative for purposes of submitting bids; (b) be registered with local authorities as a prerequisite for bidding; and (c) be associated with local contractors or suppliers.
2. Bids may be: (a) submitted at any reasonable time before bid opening, either by mail or courier or in person; and 25
(b) accompanied by a bid security in the form and amount specified in the standard bidding documents.
3. No provisional award shall be made at the time of bid opening.
4. No minimum number of bids shall be required as a condition to award a contract.
5. Contracts shall be awarded to the bidder whose bid has been evaluated as the lowest responsive bid, in accordance with criteria clearly set forth in the standard bidding documents.
6. After contract award, performance securities shall be provided within the time period, and in form and amount specified in the standard bidding documents.
B. The following principles of procurement shall expressly govern all procurement of works and printing services for educational and assessment materials under National Competitive Bidding:
1. Bids may be: (a) submitted at any reasonable time before bid opening, either by mail or courier or in person; and (b) accompanied by a bid security in the form and amount specified in the standard bidding documents.
2. No provisional award shall be made at the time of bid opening.
3. No minimum number of bids shall be required as a condition to award a contract.
4. Contracts shall be awarded to the bidder whose bid has been evaluated as the lowest responsive bid, in accordance with criteria clearly set forth in the standard bidding documents.
5. Contracts for civil works shall provide for mobilization advances, whenever appropriate.
6. After contract award, performance securities shall be provided within the time period and in the form and amount specified in the standard bidding documents.
7. Price adjustment provisions, acceptable to the Bank, may be included in work contracts.
C. The following principles of procurement shall expressly govern all procurement of consultants' services:
1. Foreign consultants shall not be required to:
(a) be locally registered as a condition of participation in the selection process; 26
(b) give any participation in or share of any consulting contracts to any local firm or person for the purposes of participating in the selection process or receiving an award, except in connection with a joint venture arrangement where: (i) a sufficient number of capable domestic firms or individual consultants exist to allow a foreign consultant reasonable freedom of choice; (ii) the contribution of either party to the joint venture arrangement will not be constrained by any prescribed manner or extent of participation; and (iii) the foreign consultant is not required to associate itself with any specific named domestic firms or individual consultants; (c) furnish any certificate issued by a local authority about their legal capacity or tax status for the purposes of submitting a proposal; and (d) personally submit their proposals.
2. Consultants shall be selected from a short list of firms invited to submit proposals on the basis of terms of reference, employment conditions and evaluation criteria clearly set forth in the respective letter of invitation.
E. Disbursements
3.18 The proposed project would be implemented over a period of approximately 5 years and is expected to be completed by June 30, 2001 and to close by December 30, 2001. The loan funds would be disbursed as follows: civil works, 78 percent of expenditures for rehabilitation and substitution; educational materials, office and computer equipment for the MIS, school furniture, vehicles, printed materials and other goods, 100 percent of foreign expenditures, 100 percent of local expenditures (ex-factory cost), and 95 percent of local expenditures for other items procured locally; printing services, 100 percent of local expenditures. Proceeds of the loan would also be disbursed for training, consultants, studies and technical assistance and fixed-term staff in PAU at 100 percent. Retroactive financing of up to US$3.0 million (8.6 percent of the total loan amount) would be provided to help cover eligible expenditures made after February 1, 1996.
3.19 The Bank may require withdrawals from the Loan Account to be made on the basis of statements of expenditure, under such terms and conditions as the Bank shall specify by notice to the Borrower, for: (a) expenditures for goods, works, printing services, and consultants' services under contracts costing less than the equivalent of: (i) $50,000 in the case of goods, $250,000 in the case of printing services, and $500,000 in the case of works (except the first two contracts), to be awarded pursuant to the provisions of NCB; (ii) $100,000 in the case of consulting firms' services; and (iii) $50,000 in the case of individual consultants' services; and (b) payments made for training activities provided under the project, such as: (i) the rental of training facilities; (ii) transportation expenses of trainees and MOE staff to and from the training site and subsistence expenses for such trainees and trainers; (iii) fellowships for training courses to be provided in the Borrower's territory or abroad; and (iv) study tours in the Borrower's territory or abroad. SOEs should contain information as agreed upon with the Bank and supporting documentation related to SOEs would be retained by the PCU for periodic inspection by the Bank and external auditors. 27
3.20 A SpecialAccount in US dollarswith an initialdeposit of US$ 2.0 millionwould be establishedat the NationalBank of Panama. The maximumauthorized allocation would be US$ 2.0 millionafter aggregatedisbursements have reachedUS$ 5.0 million. The SpecialAccount shouldbe replenishedmonthly and shouldbe used for all transactionswith a value of less than 20 percent of the amountadvanced to the SpecialAccount. Normal documentationrequirements apply,except that in addition,a copy of the bank statementfrom the institutionholding the account, detailingthe transactionsmade and reconciledby the borrower,would accompanyeach replenishmentrequest.
F. Accountingand Auditing
3.21 MOE and FES will establishand maintainseparate project accountsand records for project expenditures. The PAU will maintaina consolidatedaccount of all expendituresunder the project. These accounts,including accounts for subprojectsadministered by FES, will be audited annuallyby independentauditors, in accordancewith appropriateauditing principles, with terms of referenceapproved by the Bank. The audit reports, whichwill includea separate opinionon the adequacyof Statementof Expendituresand on the SpecialAccount.
4. PROJECT IMPLEMENTATION AND MANAGEMENT
A. Project Implementation and Management
4.1 The project willbe under the generaldirection of MOE. The GeneralSecretary has overallresponsibility for ensuringdiligent, efficient and timelyproject implementation.MOE has alreadyappointed a Project Coordinator,to the Bank's satisfaction,for the Project Administration Unit (PAU), who reports to the GeneralSecretary. The PAU willbe responsiblefor preparing, monitoring and evaluating the implementation plan. In particular, the Government agreed at negotiations that the PA U will: (i) conduct Annual Project Reviews, produce an annual project implementation review report andprepare an annual implementation plan for the following year, starting in July 1997; (ii) furnish to the Bank, during the month of August 1996, a budget and an investment plan for, and the targets to be achieved in, the implementation of the project in 1997 and exchange views with the Bank on said budget, plan and targets, by no later than September 30, 1996; (iii) prepare a project implementation completion review report; and, (iv) processing of documentation requiredfor the procurement of goods (other than furniture and equipment for primary schools, which will be done by FES) and consultants' services under the project and the disbursement of Loan proceeds (para. 6.1(e)). The PA U will be staffed with, inter alia, a Project coordinator, a Project accountant and a procurement officer, all with qualifications and experience satisfactory to the Bank (para. 6.1 ()). Under the DGE (Direccion General de Educacion), the Curriculum Directorate (Direccion de Curriculo, DC) will implement two subcomponents:Provision of Textbooksand EducationalMaterials for the Poor, and In- serviceTeacher Training. The EducationAssessment System will be the responsibilityof the 28
General Directorate for Educational Planning (Direccion General de Planeamiento Educativo, DGPE). Expansion of pre-primary coverage will be the responsibility of the Initial Education Directorate (Direccion de Educacion Inicial, DEI) and the scholarship reorientation subcomponent will be implemented by IFARHU, Institute for Training and Progress in Human Resources (Instituto para la Formaci6n y Aprovechamiento de Recursos Humanos - LFARHU). IFARHU, created in 1965, is an institute with patrimony under MOE's supervision, that administers scholarship programs for the secondary and university levels. It has a well-trained, experienced staff. The borrower shall enter into an agreement with IFARHU, satisfactory to the Bank, which provides for the provision to IFARHU of the funds, facilities, services and other resources required to enable IFARHU to carry out the scholarship reorientation subcomponent. To assist in the construction, rehabilitation, equipment and furnishing of primary school classrooms in the rural areas, MOE will enter into agreement with the FES. In existence for 4 years, FES has recently been restructured with technical assistance from IDB and UNDP. The Bank's appraisal mission concluded that IFARHU and FES have adequate institutional capacity to implement their respective subcomponents. Signing of the agreements between IFARHU and MOE on the implementation of the scholarship reorientation subcomponent, and between FES and MOE on the primary school rehabilitation and maintenance subcomponent, respectively, would be a condition for effectiveness (para 6.2(e)).
B. Project Monitoring and Supervision
4.2 Project Monitoring. Outcome and Impact indicators and the Project Implementation Schedule will guide project management, monitoring and supervision (Annexes 12, 14 and 15.).
4.3 Annual Progress and Investment Plan Review. The annual review to be prepared by the PAU in July each year, starting in 1997 would focus on overall project implementation, technical assistance, delivery of services (training, educational materials, infrastructure), disbursement and procurement issues. As conditions for effectiveness, MOE will submit a detailed project implementation plan for 1996 for all components (para. 6. 2(a)). At negotiations, MOE agreed: (a) to produce an Annual Implementation Plan for the following year starting July 1997 and an Annual Project Implementation Report, starting in July 1997. The Annual Implementation Report will include cumulative information from the beginning of the project; (b) to conduct annualproject reviews starting in July 1997. The reviews would: (i) analyze the previousyear 'sproject performance based on an activity report and budget allocation; and (ii) analyze the proposed subsequent year 's investment plan and budget, including staffing, contracts, annual research plans and their TORs and schedules for delivery of services (para. 6. 1(a));and (c)furnish to the Bank, during the month of August 1996, a budget and an investment plan for, and the targets to be achieved in, the implementation of the project in 1997 and exchange views with the Bank on said budget, plan and targets, by no later than September 30, 1996 (para. 6.1(b)).
4.4 Mid-Term Review. The third annual review, in 1999, would be the mnid-termreview and it would assess project performance regarding output indicators (delivery of services) and process indicators (critical tasks). It would assess the activities and information gathered in order to 29
conduct the impact evaluation at the end of the fifth year of the project. At negotiations the borrower agreed to conduct with the FES and the Bank, under terms of reference acceptable to the Bank a mid-term review of the implementation of the project and its impact, prepare an action plan acceptable to the Bank to incorporate lessons learnedfrom the review, and implement it (para. 6. 1(c)).
4.5 Impact Evaluation. The following is the expected impact of the project on selected quality, equity, efficiency and coverage indicators. The expected quality improvements are: (a) increment on the levels of achievement in Spanish, Mathematics, Social Sciences and Natural Sciences by 10-15 percent from the baseline to be established in 1996; (b) increment on time spent on learning activities at school after delivering the project inputs; (c) changes in the quality of interactions between mothers and children, as perceived by the mothers. The expected equity improvements are: (a) a decrease in the gap between poorest and richest corregimientos in repetition and dropout rates. Dropout rates in the poorest corregimientos are expected to decrease from 6.2 to the current national average of 4.6. The expected improvement of efficiency will be a decrease in the average number of years required to complete the basic education cycle (1-9) from current 12.87 to 12 years. The expected pre-primary coverage improvement will be an improvement from current 45 percent to 75 percent (Annex 12).
5. PROJECT BENEFITS AND RISKS
A. Project Benerits and Economic Returns
5.1 The main benefits of the project will be an increase in future earnings due to improved productivity, especially for students from low-income family and rural areas. Furthermore, the project would also produce benefits that would accrue to society at large beyond the project beneficiaries which are difficult to quantify, but which would contribute to poverty alleviation, especially in rural areas. The social internal rate of return (IRR) for the improvement of basic education quality component (excluding scholarships) is 19%. Given the high percentage of the IRRfor this component, it is economically feasible and definitelyjustifiable to undertake the project (Annex 13).
5.2 The savings from the preschool component are very encouraging. The annual average cost per formal preschool child is US$288 based on the Ministry of Education's 1993 data. With the CEFACEI program, the cost per child is only US$124. The project would provide preschool education for 22,000 preschool-age children during the life of the project. The savings from CEFACEI program is about US$3.5 million. With the mother-to-mother program, the cost per child is US$243. This program would benefit 3,000 children in rural areas, thus, the savings from this program is US$135,000. Combining the savings from CEFACEI and Mother-to-Mother programs, the total savings for the component will be US$3.6 million. This is not only significant savings on public expenditures, but also an efficient way of improving equity in preschool education and alleviating poverty, especially in the rural areas. 30
5.3 Another major savings would come from the lower secondary education scholarship program. The rationale of the program is to provide financial support to students from the rural low-income families, thus allowing them to attend lower secondary schools. The amount per scholarship is US$315 per year. The total costs for secondary scholarship programnwould be about US$3 million over the life of the project. Comparing the costs of building more schools to accommodate the same number of students, the total cost would be on the order of US$19.5 million. Obviously, the cost for building schools is much higher than the cost for scholarships. Savings from the scholarship program compared to the option of building more schools would be about US$16 million. (Annex 13).
B. Impact on Women
5.4 Approximately half of the children who would benefit from an improved quality of educational services would be girls; their access to higher levels of education and better work opportunities would thus improve. The selection criteria for scholarships will benefit girls over boys (at least a 60% awarded to girls) to raise female enrollment. It is expected that the targeted educational inputs will decrease the gap between girls and boys in termnsof repetition, drop out, failure rates and enrollment. Further benefits can also be expected, as research has shown that increasing the education levels of women has a significant positive effect on the health status and the educational attainment of children, and also contributes to lower fertility.
C. Environmental Impact
5.5 The project will have no direct environmental effects, and has been classified as C.
D. Participatory Approach
5.6 As the parental role is crucial in early childhood development, this project incorporates parents in the delivery of the pre-primary curriculum. The project will support community- administered CEFACEIs, and give parents and communities a prominent role in administering the funds to pay the community educators.
E. Project Risks
5.7 The first risk is the limited managerial and administrative capacity of MOE. This risk will be attenuated through: (a) the appointment of experienced managers to head the implementation unit; (b) the training of staff involved with the project in administrative tasks; (c) the preparation of a detailed manual of project operating procedures; (d) the establishment of clear and detailed monitoring indicators for the project and explicit timetables for key actions; (e) the design of a simple procurement and disbursement program for textbooks and infrastructure, the two largest expenditures. The second risk is the limited capacity of the MOE for planning and implementing projects on a large scale. This risk will be attenuated through the provision of technical assistance 31 for each componentand relianceon externalexperts (nationaland international)to implement some of the components. The provisionof technicalassistance will strengthenMOE's capacity for makingpolicy decisions. The contractingof principalactivities such as implementationof the evaluationsystem or textbook productionwill ensure qualityand free the MOE of direct responsibilityfor implementation.
F. Program Objective Category
5.8 The project fallsunder the Program ObjectiveCategory of poverty reductionand would support a programof targeted interventionsas part of the Government'snational policy of equitableaccess to educationopportunities, by channelingresources especially to poor and rural areas, thus contributingto poverty reductionand the developmentof humanresources.
6. AGREEMENTS REACHED AND RECOMMENDATION
6.1 During negotiations the Government agreed to:
(a) conduct AnnualProject Reviewswith an annualproject implementationreview report and prepare an annual implementation plan for the following year, starting in July 1997 (para. 4.3);
(b) furnish to the Bank, during the month of August 1996, a budget and an investment plan for, and the targets to be achieved in, the implementation of the project in 1997 and exchange views with the Bank on said budget, plan and targets, by no later than September 30, 1996 (para. 4.3);
(c) conduct a mid-term review in 1999 (para. 4.4);
(d) follow the Bank ProcurementGuidelines for all procurementof goods and services under the project and apply the Special Provisions for procurement of goods and consultantservices, which differfrom the nationalprocedures, to the project implementation(para.3.17);
(e) maintain within MOE a Project Administration Unit with functions and responsibilities satisfactory to the Bank (para. 4.1);
(f) ensure that the PAU is at all times staffed with essential staff satisfactory to the Bank (para. 4.1);
(g) include: (i) in MOE's budget separate lines covering fees for pre-primary community educators (promotoras and madres lideres) and operating and 32
maintenance costs of the schools included under the project; and (ii) in IFARHU's budget a separate line covering the scholarships for Primary and Lower Secondary students (para.3.8)
6.2 As conditions for effectiveness the borrower will:
(a) submit a detailed project implementation plan for 1996 for all components (para. 4.3);
(b) agree to provide evidence that a budget line has been included in the 1996 Government's budget for promotoras, scholarships, and operating and maintenance costs (para. 3.8);
(c) provide evidence that the revolving fund has been established and that the deposit of counterpart funds in the amount of $250,000 has been made (para. 3.5);
(d) put into effect the Operational Manual (para. 3.10); and
(e) ensure that the implementation agreements between MOE and FES and MOE and IFARHU have been signed (para. 2.20).
6.3 Recommendation. Subject to the above assurances and conditions, the proposed project would constitute a suitable basis for a loan of US$ 35.0 million to the Republic of Panama.
ANNEXES
1. Education Statistics 2. Sector Financing 3. Policy Matrix 4. Targeting 5. Multigrade Teacher Training 6. Textbooks 7. Student Assessment 8. Pre-primary 9. Project Costs and Financing 10. Recurrent Cost implications 11. Project administration Unit 12. Project Impact and Output indicators 13. Economic Benefits 14. Project Implementation Schedule 15. Supervision Plans and Reviews 16. Documents in Project Files 33 ANNEX 1 Education Statistics EDUCATION STATISTICS
Table 1: School Enrollment Trends 1970-92
Pre-school Primary Secondary University Other Year Total Gross Total Gross Drop Total Gross Drop Total Gross Total Total enroll- enroll- enroll- enroll- out enroll- enroll- outrate enroll- enroll- enrotl- for ment ment ment ment rate ment ment ment ment ment Systent ratio ratio ratio ratio 1970 7 8 255 105 2.1 79 40 N/A. 9 6 4 354 1980 18 17 338 107 2.2 171 61 6.7 40 16 15 583 1983 26 24 336 105 2.5 176 60 5.7 45 16 12 595 1986 30 27 344 107 2.2 187 61 4.3 60 19 l 632 1987 33 30 346 107 2.1 190 61 5.6 55 17 11 634 1988 33 29 345 106 2.8 190 61 6.7 51 16 11 631 1989 32 28 350 107 1.6 190 61 3.8 50 15 12 634 1990 31 27 351 106 1.8 196 63 5.3 53 15 11 641 1991 34 29 350 105 1.6 198 63 5.7 58 17 11 651 1992 33 28 356 105 1.5 201 64 5.5 63 18 12 663 Note: Gross Enrollment and Drop Out Numbers are Percentages; Total Enrollment Numbers are in thousands. Source: MOE, Statistics Department.
Table 2: School-Age Population, Students, Enrollment Rate by Level of Education, 1992
School-Age Enrollment Students Population Students Rate Pre-school 360,071 33,288 57.9 gross Nursery School 302,581 7,120 2.3 net Kindergarten 57,490 26,168 45.5 net Primary 337,495 356,247 105.0 gross 90.9 net Secondary 316,005 201,047 63.6 gross 53.0 net University 250,097 63,288 25.3 gross Source:MOE, StatisticsDepartment
Table 3: Pre-School, Primary and Secondary School Coverage by Province
Province Pre-School Primary Net Secondary Gross Net Enrollment Enrollment Enrollment Ratio Ratio Ratio San Blas NiA. _64.6 20.6 Darien 39.87 96.4 21.1 Bocas del Toro 31.06 98.0 33.8 Veraguas 5_1.66 90.9 58.1 Chiriqui 41.54 89.4 61.1 Cocle 48.96 97.0 47.1 Herrera 59.54 84.6 59.6 Colon 49.75 98.3 71.0 Los Santos 55.03 92.5 54.3 Panama 42.67 91.9 73.7
N/A: Notavailable. Note:Provinces are listed in orderof poverty with the poorest province listed first The Povcrty Index is comprised of three variables:housing, education and health. (See Targeting Annex for a detailedexplanation) Source:MIPPE. 34 ANNEX I Education Statistics
Table 4: Private and Public Schools and Enrollment by Education Level, 1993
Schools Students Total Percent Private Total Percent Private
Pre-School 894 31.4 34,044 29.3 Primary 2,744 5.0 356,247 8.5 Secondary 376 39.6 205,817 17.4 Source: MOE, Statistics Department.
Table 5: Student/Teacher Ratio; Student/School Ratio and Teacher/School Ratio by Levels of Education, 1992
_ Students/Teacher Students/School Teachers/School Pre-school 23 37.2 1.6 Primary 25 129.8 5.2 Secondary 20 901.5 45.3 Source: MOE, Statistics Department.
Table 6: Pre-Primary Students by Age, 1992
Percent Of Number Of Students By Students Agte Age ublic Lacantes Maternales Pre-Jardin Jardin One year 0.02 4 4 0 0 0 2 years 0.04 8 0 8 0 0 3 years 0.27 56 0 56 0 0 4 years 3.50 736 0 0 736 0 5 years 78.72 16,560 0 0 0 16,560 6 years 17.22 3,623 0 0 0 3,623 7 years 0.23 49 0 0 0 49
Total 100.00 21,036 Source: MOE, Statistics Department. 35 ANNEX 1 Education Statistics Table 7: Pre-School Coverage by Province
Province Net Enrollment Gross Enrollment Poverty Index San Bias N/A. N/A. 19.1 Darien 39.87 50.69 29.9 Bocas del Toro 31.06 39.48 47.3 Veraguas 51.66 65.63 52.3 Chirigui 41.54 52.78 67.9 Cocle 48.96 62.19 71.8 Herrera 59.54 75.64 80.1 Colon 49.75 63.19 84.8 Los Santos 55.03 69.90 85.7 Panama 42.67 54.23 94.9 Total 45.52 57.83 N/A.: Not available. Note: Provinces are listed in order of poverty with the poorest provincc listed first. The Poverty Index is comprised of three variables: housing, education and health. (Sec Annex 1 for a detailed explanation) Source: MIPPE.
Figure 1: Pre-School Gross Enrollment Rate in Selected Countries
100 ixo-go
so780 -_____ -
70 - -
30 a e e 20 P 10 20 E '1990 Country Source:UTNESCO, 1993b
Table 8: Primary Education Coverage in Selected Countries (Percent)
Country Gross Enrollment Net Enrollment Panama' 104 90 Chileb 98 87 Colombia' III 74 Costa Rica' 102 97 Venezucla' 99 91 a 1991 b 1992 C 1990 Source: UNESCO,1993b. 36 ANNEX 1 EducationStatistics Table 9: Primary Education Coverage by Province, 1993
Province Net Enrollment Poverty Index San Bias 64.6 19.1 Darien 96.4 29.9 Bocas del Toro 98.0 47.3 Veraguas 90.9 52.3 Chiriqui 89.4 67.9 Cocle 97.0 71.8 Herrera 84.6 80.1 Colon 98.3 84.8 Los Santos 92.5 85.7 Panama 91.9 94.9 Note: Provinces are listed in order of poverty with the poorest province listed first. Source: MOE, Statistics Department.
Table 10: Primary Education Repetition and Drop out Rates for Public and Private School
Rcpetition Rates Drop out Rates Province Public Private Public Private San Blas 18.3 n.a. 3.3 n.a. Darien 22.3 n.a. 3.3 n.a. Bocas del Toro 21.7 0.5 2.0 14.7 Veraguas 15.0 15.0 1.7 0.2 Chiriqui 10.1 0.5 3.4 0.3 Cocie 9.5 0.5 0.7 0.7 Herrcra 10.1 0.4 1.4 n.a. Colon 10.3 1.2 1.3 n.a. Los Santos 6.1 n.a. 1.4 4.9 Panama 6.8 0.6 1.2 n.a. Total 10.4 0.7 1.7 0.2 n.a.: Not available. Note: Provinces are listed in order of poverty with the poorest province listed first. Source: MOE. Statistics Department, 1992. 37 ANNEX 1 EducationStatistics Table 11: Primary Enrollment by Sex, by Corregimiento (percent)
Grade Corregimientos Males Females Total Males Females
First Targeted 17358 15031 32389 53.6 46.4 Rest 20331 17948 38279 53.1 46.9 Country 37689 32979 70668 53.3 46.7 Richest10% 1436 1273 2709 53.0 47.0
Second Targeted 14425 12466 26891 53.6 46.4 Rest 17601 16101 33702 52.2 47.8 Country 32026 28567 60593 52.9 47.1 Richest 10% 1866 1682 3548 52.6 47.4
Third Targeted 12675 11141 23816 53.2 46.8 Rest 16290 15030 31320 52.0 48.0 Country 28965 26171 55136 52.5 47.5 Richest10% 1755 1632 3387 51.8 48.2
Fourth
____X______Targeted 10942 9804 20746 52.7 47.3 Rest 14689 13648 28337 51.8 48.2 Country 25631 23452 49083 52.2 47.8 Richest10% 1589 1518 3107 51.1 48.9
Fifth ______T Targeted 9802 8856 18658 52.5 47.5 Rest 14651 13820 28471 51.5 48.5
_ Country 24453 22676 47129 51.9 48.1 Richest 10% 1629 1527 3156 51.6 48.4
Sixth Targeted 9368 8538 17906 52.3 47.7 Rest 14734 14775 29509 49.9 50.1 Country 24102 23313 47415 50.8 49.2 Richest 10% 1700 1742 3442 49.4 50.6
Total Targeted 74570 65836 140406 53.1 46.9 Rest 98296 91322 189618 51.8 48.2 Country 172866 157158 330024 52.4 47.6 Richest 10% 10547 9917 20464 51.5 48.5
50.9 49.1 38 ANNEX 1 EducationStatistics
Table 12: Primary School Student Failure, Repetition and Drop out in Public and Private Schools
Repeaters Grade 1 Grade 2 Grade 4 Grade 4 Grade 5 Grade 6 Total
Public 19 16.4 12.6 8.3 5.6 2 11.4 Private 0.4 0.6 0.4 0.3 0.5 0.2 0.4
Dropout Public 3.3 1.9 1.7 1.1 1 1.1 1.7 Private -0.8 1 0.2 1.4 -0.8 0.3 0.2
Failure Public 18.5 14.4 10.3 7.7 5.9 1.5 10.4 Private 1.2 1 0.6 0.5 0.4 0.2 Source: MOE, StatisticsDepartment.
Table 13: Primary School Students Failure, Repetition and Drop out in Rural and Urban Areas 1993
Repeaters Grade I Grade 2 Grade 4 Grade 4 Grade 5 Grade 6 Total
Rural 22.5 19.1 15.4 9.8 6.3 2.5 14 Urban 11.8 11.2 8.2 6.8 4.8 1.4 7.9
Drop out Rural 3.6 2 1.9 1.6 1.6 1.6 2.2 Urban 2.6 1.6 1.3 0.4 0.2 0.4 1.1
Failure Rural 22.2 17.3 13.6 9 6.6 1.7 13.8 Urban 11.1 8.8 6.2 5.8 4.9 1.1 6.6 Source:Statistics Department. 39 ANNEX I Education Statistics Table 14: Number of Classrooms by Shift and Province, 1992
Classrooms in Usc Provinces Classrooms' One Shift Two Shifts Three Shifts Total 12,472 11,363 1,817 368 Bocas del Toro 626 573 171 20 Cocle 1,293 1,192 34 36 Colon 843 767 182 29 Chiriqui 2,333 2,141 136 81 Darien 483 430 _ 21 Herrera 704 594 2 25 Los Santos 662 553 __30 Panama 3,497 3,241 1,221 46 Veraguas 1,799 1,640 71 67 San Blas 232 232 __13 Panama en Cifras reports 11,181 classrooms. The Planning Direction of the Ministry of Education reports 12,472; 970 classrooms are being used for secondary school; classrooms in use: 11,363+1,817 (second shift)+ 1,263 (private schools classrooms)= 14,443.
Table 15: Qualirications of Primary Education Teachers, 1990 (Percent)
Primary Other than Special Province Teacher Pedagogy Pedagogy Subjects Other Total Group1 90.6 0.4 4.2 0.8 4.2 100.0 Group2 84.3 2.8 9.0 2.4 1.3 100.0 Group3 72.8 3.9 j 16.3 3.8 3.2 100.0 Note: The three groups were formedfollowing the povertymap. Group 1 = the poorestprovinces (San Blas, Darien, Bocas del Toro). Group2 = the middle-incomeprovinces (Veraguas, Chiriqui, Cocle, Herrera). Group 3 = the less poor (Colon,Los Santos,Panama). Source: Officeof Statisticsand Census,Cultural Position, Ministry of Education, 1990.0 0
Table 16: Secondary Gross Enrollment Rates, 1992
Province Gross Enrollment Rate San Blas 20.6 Darien 21.1 Bocas del Toro 33.8 Vcraguas 58.1 Chiriqui 61.1 Cocle 47.1 Herrera 59.6 Colon 71.0 Los Santos 54.3 Panama 73.7 Total 63.6 Note: Provinces are listed in order of poverty, wviththe poorest province listed first. Source: Comptroller General of the Republic, 1993, and mission estimates. 40 ANNEX 1 Education Statistics Table 17: Secondary Ed cation Student, Teacher and School Ratios, 1993 Student/ Student/ Student/ Teacher/ Classroom/ Teacher Classroom School Ratio School Ratio School Ratio Ratio Ratio Public 21 44 762 36 17 Private 17 30 256 15 8 Total 20 41 567 28 14 Source: MOE, Statistics Department.
Table 18: Secondary Education Failure and Drop Out Rates, 1993 ______Dropout _ Failure Province Total Public Privatc Total Public Private San Bias 7.2 7.2 n.a. 12.5 . 12.5 n.a. Darien 11.6 11.6 n.a. 10.8 10.8 n.a. Bocas del Toro 4.6 4.6 4.5 8.9 9.5 5.2 Veraguas 4.5 4.6 3.3 7.8 8.0 3.0 Chiriqui 5.9 6.4 0.6 6.4 6.6 4.3 Cocle 2.6 2.7 0.3 7.1 7.1 5.6 Herrera 7.2 7.3 n.a. 12.8 12.9 5.2 Colon n.a. n.a. n.a. n.a. n.a. n.a. Los Santos 6.4 6.4 n.a. 6.5 6.5 n.a. Panama 5.3 5.7 4.2 12.4 14.4 6.5 Total 5.5 5.8 n.a. 10.5 11.4 6.1 n.a. Not Available. Note: Provinces are listed in order of poverty with the poorest province listed first. Source: MOE, Statistics Department.
Table 19: Secondary Education, Academic and Profess-Technical Students (percent)
1989 1990 1991 1992 1993 Academic 42.0 42.6 43.1 43.7 42.9 Professional- 58.0 57.4 56.9 56.3 57.1 Tcchnical Total 100.0 100.0 100.0 100.0 100.0 Source: MOE, 1993b.
Table 20: Secondary Education, Gross and Net Enrollment in Selected Countries
Gross Enrollment Net Enrollment Country 1985 1991 1985 1991 Panama 59 64' 47 52' Chile 67 72 n.a. 55 Costa Rica 40 67 34 43 Venezuela 24 34 16 19 Latin America 65 68 51 54 Developed Countries 90 91 87 86 a 1992. n.a.: Not available Source: UNESCO, 1993; Panama: Office of Statistics and Census. 41 ANNEX 1 Education Statistics Table 21: Efficiency of the Public Primary Education System: Performance of a Hypothetical Cohort of 1000 Students Using Constant Rates of Promotion, Repetition and Drop out
NUMBER OP GRADES IN CYCLE: 6 SCHOOL YEAL 1992
Gr,d-I G.d eS Gr% 3de 2Gmde 4 GrdeS Grade 6 TOTAL ENROLLM{ENT 67,2S0 56,406 52.72 53.736 49.S22 44.0S9 324205 REPEATERS 12,768 9,249 6.679 4.442 2.797 889 36.24 DROPOUTS 2,190 1.065 Sh0 5a5 490 477 5.657 PROMOTED 52.322 46.092 45.313 46.709 46.535 42.723 281.694 REPETMON RATE 19 16.4 12.6 9.3 5.6 2 11.4 DROPOUT RATE 3.3 1.9 1.7 1.1 1 1.1 a.3 PROMOTION RATE 77.8 81.7 65.7 90.6 93.4 96.9 86.9
'.'i.'.,,,-"'.,.--:...... '''','X' ' ' :. i- .
1992 1000 0 0 0 0 0 0 1 1.000 1993 290 776 0 0 0 0 0 2' 968 1994 36 276 636 0 0 0 0 3 948 1995 7 73 305 545 0 0 0 4 930 1996 1 17 98 306 494 0 0 5 916 1997 0 4 26 109 305 461 447 6 905 2.682 1998 0 1 6 31 116 294 235 7 448 1.995 1999 0 0 2 6 34 114 110 6 15S 660 2000 0 0 0 3 9 34 33 9 46 297 2001 0 0 0 0 4 9 9 10 13 91 2002 0 0 0 0 0 4 4 1 1 4 44 2003 0 0 0 0 0 0 0 12 2004 0 0 0 13 2005 0 0 0 0 0 0 0 14 TOTALs .124 118.1 *Q giglE . 5354 5.989
TIME AVERAGE - CUMULATIVE YEARS I GRADUATES 6.74 yea per graduuc COST AVERAGE - STUDENT YEARS / GRADUATES 7.14 stdent yeam per gradatl TUME EFFICIENCY - GRADUATES 'NO. OF GRADES I CUM YEARS 0.69 output / ycrnawed COST EPFICIENCY - GRADUATES * NO. OF GRADES I STUDENT YEARS 0.34 output I pIsbs finanoed
STUDENT YEARS - TOTAL STUDENTS ENROLLED IN EACH YEAR CUMULATIVE YEARS - GRADUATES IN YEAR ' NUMMER OF YEARS TO GRADUATE 42 ANNEX I Education Statistics
Table 22: Primary School Student Failure, Repetition and Drop out in Public and Private Schools
.-. ,:- s 1-GCade 1: ade 2 Grde. 4 . VGade 4 i:rde 5 Gade :6 Ttial :: Public 19 16.4 12.6 8.3 5.6 2 11.4 Private 0.4 0.6 0.4 0.3 0.5 0.2 0.4
Dropout Public 3.3 1.9 1.7 1.1 1 1.1 1.7 Private -0.8 1 0.2 1.4 -0.8 0.3 0.2
Failure Public 18.5 14.4 10.3 7.7 5.9 1.5 10.4 Private 1.2 1 0.6 0.5 0.4 0.2 Source: MOB, Statistics Department.
Table 23: Primary School Students Failure, Repetition and Drop out in Rural and Urban Areas 1993
FtRepiers Grade:4 GradeS Grader .Total: Rural 22.5 19.1 15.4 9.8 6.3 2.5 14 Urban 11.8 11.2 8.2 6.8 4.8 1.4 7.9
Dropout Rural 3.6 2 1.9 1.6 1.6 1.6 2.2 Urban 2.6 1.6 1.3 0.4 0.2 0.4 1.1
Failure Rural 22.2 17.3 13.6 9 6.6 1.7 13.8 Urban 11.1 8.8 6.2 5.8 4.9 1.1 6.6 Source: Statistics Department. 43 ANNEX 1 EducationStatistics
Table 24: Efficiency of the Basic Education System grades 1-9: Performance of a Hypothetical Cohort of 1,000 Students, Using Constant Rates of Promotion, Repetition and Drop Out NUMBER OF GRADES IN CYCLE: 9 93.02 3.877 SCHOOL YEARs1992
...... -. GRADE GRADE GRADE... GRADE GRADE GRADE CGRADR GRADE ..GRADE." .--.. :::.::---: .-- .. --- 2 : :3 :::: -4 . -- S 6 -. 7. T TAL ENROLLMENT 67,230 56,406 52,872 53,736 49,822 44,089 41,013 33,682 27,605 426,505 REPEATERS 12,768 9,249 6,679 4,442 2,797 889 4,639 3,660 2,962 48,05 DROPOUTS 2,190 1,065 880 585 490 477 3,554 2,198 1,286 12,725 PROMOTED 52,322 46,092 45,313 48,709 46,535 42,723 32,820 27,824 23,357 365,695 REPETITIONRATE 19 16.4 12.6 9.3 5.6 2 11.3 10.9 10.7 0 DROPOUTRATE 3.3 1.9 1.7 1.1 I 1.1 8.7 6.5 4.7 0 PROMOnON RATE 77.8 81.7 85.7 90.6 93.4 96.9 S0 82.6 84.6 0
-... GR' G GRADE GRADE .GRADE G: -GRADE GJADE: GRADU-EB TO W : M..: SCHOOLYEARS 2 31..3 A4 5 1 a -9 AlrES GR13AD EX CU E 1992 1000 0 0 0 0 0 0 0 0 0 1 1,000 1993 190 778 0 0 0 0 0 0 0 0 2 968 1994 36 276 636 0 0 0 0 0 0 0 3 948 1995 7 73 305 545 0 0 0 0 0 0 4 930 1996 1 17 98 306 494 0 0 0 0 0 5 916 - 1997 0 4 26 109 305 461 0 0 0 0 6 905 - 1998 0 1 6 31 116 294 447 0 0 0 7 895 - 1999 0 0 2 8 34 114 336 358 0 0 a 852 - 2000 0 0 0 3 9 34 148 308 296 250 9 798 2,250 2001 0 0 0 0 4 9 50 152 286 242 10 501 2,420 2002 0 0 0 0 0 4 15 57 157 133 11 233 1,463 2003 0 0 0 0 0 0 6 18 64 54 12 S8 648 2004 0 0 0 0 0 0 1 7 22 19 13 30 247 2005 0 0 0 0 0 0 0 2 8 7 14 10 98 TOTALS 1,234 1,149 1,073 1,002 962 916 1,003 902 - 33 705 .. -- 9,074-. 7.126
TIME AVERAGE = CUMULATIVE YEARS /GRADUATES 10.11 yean per grmduatn COST AVERAGE = STUDENT YEARS I GRADUATES 12.87 student yeam per graduate TIME EFFICIENCY = GRADUATES * NO. OF GRADES / CUM YEARS 0.89 output / yean used COST EFFICIENCY = GRADUATES * NO. OF GRADES / STUDENT YEARS 0.7 output / places financed
STUDENT YEARS = TOTAL STUDENTS ENROLLED IN EACH YEAR CUMULATVE YEARS = GRADUATES IN YEAR * NUMBER OF YEARS TO GRADUATE 44 ANNEX 1 Education Statistics Table 25: Multigrade Schools: Teachers and Students, 1992
-~~~~~~~~~~~~~~~~~~~~~~~.....:-Ebie(l)f;;-Eg;Siride;:'-.-i- ~i:%Mrd:;E-o fg $MutnWi-t-%fi--L It
Total 2590 2050 79.1 13114 3,734 28.5 Urban 232 9 3.9 5134 13 0.3 145,338 345 0.2
San Bla 39 23 59 226 43 19 5,534 1,052 19 Urban ------Rural 39 23 59 226 43 19 5,534 1,052 19 DarEn 149 137 91.9 432 231 53.5 9,840 4,758 48.3 Urban I - - 14 - - 345 - - Ruml 148 137 91.9 418 231 53.5 9,495 4,758 48.3 Bocas del Toro 180 164 91.1 760 286 37.6 19,062 6,369 33.4 Urban 7 - - 155 - - 4,316 - - Rural 173 164 91.1 605 286 37.6 14,746 6,369 33.4 Veraguas 441 402 91.1 1,707 799 46.8 36,699 15,638 42.6 Urban 9 - - 260 - - 6,855 - - Rural 432 402 91.1 1,447 799 55.2 29,844 15,638 52.3 Chiriquf 500 374 74.8 2,335 674 28.9 56,867 15,209 26.7 Urban 36 - - 599 - - 16,066 - - Rund 464 374 74.8 1,736 674 38.8 40,801 15,209 26.7 Code 299 241 80.6 1,209 461 38.1 29,390 10,440 35.5 Urban 14 3 21.4 258 4 1.5 7,144 95 1.3 Rural 285 238 83.5 951 457 48 22,246 10,345 46.5 Herrera 173 155 89.6 596 303 50.8 13,016 5,555 42.7 Urban 10 - - 209 - - 5,395 - - Rurul 163 155 89.6 387 303 50.8 7,621 5,555 72.9 Colon 166 123 74 952 220 23.1 26,519 4,913 18.5 Urban 14 1 7.1 417 1 0.2 13,176 41 0.3 Rural 152 122 80.3 535 219 40.9 13,343 4,872 36.5 Las Santos 168 150 89.3 478 236 49.4 8,764 3,629 41.4 Urban 5 - - 110 - - 2,678 - - Rural 163 150 92 368 236 64.1 6,086 3,629 41.4 Panama Prov. 475 281 59.1 4,419 481 10.9 121,494 10,180 8.4 Urban 136 5 3.7 3,112 8 0.2 89,363 209 0.2 Rural 339 276 81.4 1,307 473 36.2 32,131 9,971 31 (1) Provinces ordered by poverty level. .Source: MOE, Statistics Dcpartment (2) 1992 Check with Panamawhy the total of 4102 differ from other with total of 3750 ahownin other table. (3) 1993 (5) Totalenrollment is only327,185 for 1993while we am working with a total enrollment of 356,247for 1992 45 ANNEX2 Sector Financing
SECTOR FINANCING
A. Public Expenditure in Education
I. The Government has given a high priority to education sector funding. As a result, Panama ranks high, compared to other developing and Latin American countries, in terms of percentage of GDP and total public sector resources allocated to education. However, higher education receives about one third of these resources, while pre-primary education is given a disproportionately low share. The high share given to university education and the minuscule fee (approximately US$ 50) charged to university students result in an across-the-board subsidy to many students whose families could afford to contribute to the cost of their studies. The structure of subsector resource allocation favors higher income groups at the expense of lower income groups, who would benefit from additional expenditures for pre-primary and primary education. At the same time, pre-primary and primary education, which serve 54 percent of this population and include a large percentage of poor students, receive only 40.9 percent of total resources. Only 1.7 percent of total public expenditure for education is allocated to pre-primary education, a figure far below international levels.
Table 1: Current Education Expenditure Levels in Selected Countries (percent)
Panama Costa Rica Venezuela Mexico Chilc France Spain Preschool 1.7 3.6 3.3 6.1 6.7 9.5 6.4 Primary 39.2 34.5 20.2 28.6 49.4 16.8 22.2 Secondary 26.7 21.6 4.5 26.6 14.9 40.4 46.8 Higher 32.4 36.1 40.7 14.7 20.6 14.1 16.0 Others 1.5 2.8 2.0 11.5 8.2 Undistributed _ _2.7 28.5 23.9 6.4 7.7 0.4 Total, 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Years: Panama, 1993; Mexico, Chile, France, Spain 1992; Costa Rica, 1991; Vcnezuela, 1990. Sources: Panama: MOE and mission estimates; other countries: UNESCO, 1993. A It includes Preschool Expenditwe Totals may not add up due to rounding
Levels of expenditure 2. Public expenditure in education, as measured by several indicators, is high in comparison to other Latin American and developing countries, and even comparable to developed countries by some indicators. It is 5.1 percent of GNP, the highest percentage in Latin America, and almost as high as the 5.3 percent average for such expenditures in developed countries.
Trends in expenditures 3. The level of public expenditure in education remained relatively constant in the period between 1983 and 1991; expenditures as a percentage of GDP and total public sector expenditure remained virtually unchanged. However, there was an abrupt change in public expenditure in education in 1992-1993, when the aggregate level of expenditure increased 28.4 percent and expenditure per capita increased 23.7 percent over the 1990-1991 levels (Table 2). Although there were increases in public expenditure in education as percentages of GDP and total public sector expenditure in the same period, these increases were a more modest 8 percent and 11 46 ANNEX2 Sector Financing
percent, respectively. These figures reflect an increase in economic activity in 1992-1993 and the Government strategy to continue to give a high priority to the education sector.
Table 2: Public Education Expenditure Trends (annual averages in US$)
1983-1987 1990-1991 1992-1993 Total (USSmillion) 251.9 265.9 341.4 As % of GDP 5.2 5.1 5.5 As % of PublicExpenditures 15.2 15.0 16.4 Expendituresper Capita 116.3 109.8 135.8 Source: ComptrollerGeneral of the Republic.
Public Education Financing
Sources 4. The Government's general revenues financed 93.3 percent of recurrent public education expenditures during 1991-94. The remaining 6.7 percent was financed from an earmarked tax of 2.75 percent on salaries and the income of self-employed persons. General Government revenues financed 62.6 percent of investment expenditures, while external sources financed 37.4 percent. External financing is derived principally from IDB and some small grants from the United States Agency for International Development (USAID). IDB has assisted secondary schools in several operations over the past twenty-five years that have financed technical assistance, scholarships, and the construction, rehabilitation, expansion, and equipment of secondary schools. It has also financed the Social Emergency Fund (Fondo de Emergencia Social, FES) which is used to rehabilitate and renovate primary school buildings.
5. Parental fees and employer contributions are additional sources of funds for pre-primary school programs and higher education, but there are no fees for primary and secondary students. Parents of students attending the.public Jardines de Infancia may be required to pay a fee of up to US$ 10 per month. There are neither guidelines on the fees parents are required to pay nor record-keeping requirements for collections. The principal has authority over the use of funds. The level of fee collection and the importance of fees in the operation of schools are both difficult to evaluate, due to the dearth of records. The Jardines de Infancia have also benefited from materials provided by the provinces and families. The informal Family and Community Center for Initial Education (Centro Familiar y Comunitario de Educacion Inicial, CEFACEI) program is financed by a monthly parental fee of US$ 2-10 and a small annual grant from the Organization of American States (OAS). The fees paid by parents cover about 75 percent of the cost of salaries required to operate the centers. As in the case of the Jardines de Infancia, there are insufficient guidelines, records, and information about the relative importance of fee payments as a source of financing for the CEFACEI. The Centers of Infant and Family Orientation (Centros de Orientaci6n Infantil y Familiar, COIF) are located in workplaces and largely supported by employers. 47 ANNEX2 Sector Financing
6. Students enrolled in Panama's two public universities are charged an annual fee of about US$ 50, which is unnecessarily low. Fee revenues total US$ 2.8 million and cover approximately 4.1 percent of total university expenditures.
Allocation 7. The relative shares of public expenditure allocated for the three principal levels of education -- basic (including pre-primary and primary), secondary, and higher education -- remained almost constant between 1983 and 1991. However, in 1991-92 there was a significant 4.9 percent decline from the preceding two years in the allocation to basic education, and a 6.1 percent increase in the allocation to higher education. Although the percentage decline in the allocation of public resources to basic education and the increase in the allocation of such resources to higher education are not great, they are significant in that they exacerbate an already inequitable distribution of resources. Higher education receives almost one third of public education resources, to serve the 10 percent of students attending publicly-financed schools at that level.
Table 3: Public Education Expenditure Trends by Level (annual average percentages)
l ______1 1983-87 1990-91 1992-93 Pre-primary and Primary 45.1 45.8 40.9 Secondary 29.3 27.9 26.7 Higher 25.6 26.3 32.4 Total 100.0 100.0 100.0 Source: Contralorla General de la Repziblica
8. Students at the University of Panama and the Technological University pay an annual fee of about US$ 50. Although there is no family income data for students at the University of Panama, such data for the 11,000 students at the Technological University, show that about one third of students come from families with annual incomes over US$ 7,032, the top quintile of family income in Panama. A similar family income profile could be assumed for students attending the University of Panama. It is clear that a major state subsidy is going to students from middle- and upper-income families who could afford to pay for all or a substantial part of the cost of a university education. In contrast, the fees at private sector universities for upper-income students are about US$ 2,000, for middle-income students, about US$ 800, and for lower-income students, about US$ 500.
Private Education Financing 9. Private school expenditures were estimated to be US$ 77.4 million for 1992, equivalent to about 24.4 percent of total sector expenditures. Private school expenditures were particularly important at the secondary level, where they accounted for 37.9 percent of total expenditures, and least important at the higher level, where they accounted for only 8.7 percent of total expenditures. Private school expenditure on a per capita basis far exceeded per capita expenditure by the public sector on all levels, except in higher education, where public sector expenditure exceeded that of the private sector by about 20 percent. 48 ANNEX2 Sector Financing
10. The combined education expenditure of the private and public sector was about 7.4 percent of GDP in 1993. This calculation was based on direct costs and did not include the indirect costs incurred by families for school supplies, textbooks, uniforms, and transportation. The calculation also excludes the cost of studying abroad, which is fairly common at the higher education level.
Table 4: Public and Private School Expenditures by Level, 1992
| Prc-primary Primary Secondary Higher Total Private' 0.9 28.9 40.5 7.1 77.4 Public 4.5 94.9 66.4 74.4 240.2
Per Capita" Private 900 1000 1200 1200 982 Public 192 292 397 1439 421 ' US$ millions. b uss. Source: ComptrollerGeneral of the Republicand missionestimates.
D. Teacher Salaries and Working Conditions
11. There are two main components of the educational system in Panama for school teachers (initial, primary and secondary levels): salaries and work place. The salary structure is predetermined by the kind of formation the teacher has and by years of work experience, while work location is determined by a competence system based on improvement, experience and professional formation.
12. The salary structure in July 1994 consists of an initial salary, which depends on the professional formation of the teacher. This salary is in place for an initial two- year trial period. Once this stage is completed, the salary is readjusted 0-10%, depending on professional formation. Thereafter, the salary is subject to bi-annual readjustments, which add a constant amount to the base salary after every two years on the job. In the case of primary teachers (51% of the total in 1992), their salaries were incremented by US$ 13 every two years, while the salaries of secondary teachers with a specialization were increased by US$ 18 every two years. 49 ANNEX2 Sector Financing
Table 5: Teacher salary structure (US$/Month)
Working Primary Primary 1 Primary2 Secondary Spccial Secon Years Teacher Teacher Teacher Teacher Teacher
0 338 415 435 445 485 2 361 425 465 445 540 4 374 440 480 460 558 6 387 455 495 475 576 8 400 470 510 490 594 10 413 485 525 505 612 12 426 500 540 520 630 14 439 515 555 535 648 16 452 530 570 550 666 18 465 545 585 565 684 20 478 560 600 580 702 22 491 575 615 595 720 24 504 590 630 610 738 26 517 605 645 625 756 28 530 620 660 640 774 Source:Ministry of Education Notes: I Teacher with title of first instruction 2 Teacher with title of second instruction
13. Based on an international comparison, teacher salaries in Panama are high. If we consider that in 1992, GDP per capita in Panama increased to US$ 2,367, then a primary school teacher salary fluctuated--according to years of work experience-- between 1.85 and 2.91 times GDP per capita. This number is relatively high when compared with other countries in the region (see Table 6), where the average teaching salary is 2.5 times GDP per capita. Only three countries are above Panama among the 12 cases considered.
Table 6: Teacher salaries in selected Latin American countries
Country Salary/GDPpercapita
Mexico 0.9 Uruguay 1.0 Peru 1.3 Venezuela 1.5 Guatemala 1.7 Argentina 1.8 Ecuador 2.0 Colombia 2.2 Panama 2.5 Costa Rica 3.2 Brazil 3.2 Jamaica 3.4 Source:Lockheed and Verspoor:"Improving Primary Education in DevelopingCountries" World Bank, 1991 50 ANNEX 2 Sector Financing
14. Teacher salaries are high within Panama as well. According to a PRELAC report, the average income of the eighth percentile of households was US$ 379 in 1989. Incorporating the 14% increase in per capita income between 1989 and 1992, a projection of US$ 432 is obtained for 1992, when the average liquid salary of teachers was US$ 420. Teachers are clearly among the higher wage earners in Panamanian society.
15. Public school teachers in Panama are fortunate not only in salaries but also in working hours (5 and 1/2 hours 5 days a week for a period of 36 weeks in a school year), social security (complete package), retirement age (approximately 50), and job security and stability. But these benefits are not linked to performance criteria, except for a dubious system of points for location transfers (traslados). In other words, teachers receive the benefits mentioned independent of the level of dedication and effort they put into their work. This shows that the education incentive system rewards teachers regardless of their productivity. One anticipated result of this incentive scheme is high fiscal funding, and a glut of teachers with low educational achievement.
16. The policy implications point towards a reform in the incentive system, in order to link the benefits of teaching to educational achievement. Teachers in Panama should also be subject to the new norms directed towards decreasing the deficit of the social security system and increasing the retirement age.
Salary System: Incentive for Teacher Union Pressure and Explosion of Costs
17. The basic change in the salary system agreed to in 1993 refers to the concept of "oversalary" (sobresueldo) or salary increase for teachers, based on years of work experience. With the change, the readjustment is made through a higher initial salary level and incremental increases over time (see Table 7).
18. There are two main fiscal implications of this new salary scheme. First is the impact of paying each teacher according to years of work experience. An estimate shows a 5-10% increase in additional resources needed by the Government for the first year. Second, a skewed effect because as teachers get older the salaries paid will increase in relation to the present. In addition, the new salary system creates a heavy fiscal burden for the social security system, because it is based on the amount of the last salary received, which will be increased from 25% to 37% (provisional). 51 ANNEX 2 Sector Financing
Table 7: New teacher salary structure (percentage above base salary)
Working Primary Primary 1 Primary 2 Secondary 3 Special Secondary. Years Teacher Teacher Teacher Teacher Teacher
0.0 0.0 0.0 0.0 0.0 0.0 2.0 0.0 0.0 0.0 0.0 0.0 4.0 0.8 0.9 0.8 0.9 0.2 6.0 1.8 2.2 2.0 2.9 1.4 8.0 3.0 3.6 3.3 5.1 2.7 10. 4.4 5.2 4.8 7.3 4.1 12. 5.9 6.8 6.3 9.8 5.7 14. 7.5 8.7 8.1 12.5 7.6 16. 9.5 10.9 10.2 15.5 9.6 18. 12.1 13.4 12.5 18.6 11.8 20. 14.5 15.7 14.7 21.6 14.0 22. 17.5 18.6 17.4 25.2 16.7 24. 20.5 21.5 20.2 28.7 19.2 26. 24.0 25.1 23.6 32.8 22.4 28. 27.4 28.7 27. 36.7 25.3 Source: Ministry of Education Notes: I Teacher with title of first instrunction 2 Teacher with title of second instrucion 3 Beginner
19. The 1993 teacher strike and the conditions for its termination illustrate a perverse incentive for the teacher salary and benefit system in Panama. Teachers now have an incentive to exert pressure on the Government as a group, since their negotiating power depends on the number of teachers participating in the strike. In addition, the fact that the benefits obtained favor all of them, ensures a massive, synergistic movement. The overall results for Panamanian society are negative. Fiscal concessions have a high cost, because they favor the teaching profession without guaranteeing an improvement in education. Again this is due to the lack of connection between benefits and achievements in the system.
20. As mentioned above, the policy implication is to link benefits to productivity and educational achievement. Salary adjustments should be made selectively, rewarding teacher merit and experience. 52 ANNEX2 Sector Financing
Inefficiency of the Teacher Promotion/Transfer System
21. An important component in the working conditions of teachers is location: rural or urban; small or large city; etc. Different from other conditions, location is determined by competition, theoretically based on the achievement and quality of the teacher. Vacancies are publicized by the Ministry of Education for two reasons: (i) new position due to increase in enrollment; (ii) replacement due to retirement, firing or death. The creation of new openings, though, is really due to pressure from new entrants and incentives given to principals and supervisors.
22. The transfer system is complex and competition-based. It requires each candidate to choose a maximum of five possible destinations, and to present various elements that contribute to the score. There are three elements: professional formation, experience, perfection and contributions made to education. These variables in turn make up a complex system of approximately 60 items for the score.
23. The process of relocation and transfer is massive. It is estimated that each year around 9,000 teachers compete to be transferred and about 12,000 new candidates try to enter the system. This implies that during each year, one third of all teachers take part in this competition and an equivalent of 43% of teachers, already hired, try to enter the system.
24. There are at least three sources of inefficiency in the transfer and appointment system. First, the quality of education inevitably suffers if more than one third of teachers spend a lot of time and energy each year competing to be transferred to another location. This process forces teachers to attend workshops (to increase their scores), to travel and visit different locations, to spend time and other resources trying to influence the Ministry to select them and to find out about applications, etc.
25. A second source of inefficiency derives from the significant administrative cost of the transfer/appointment system for the Ministry. Each year it must process around 21,000 applications, select the candidates and make sure that the vacancies are filled. Workshops and courses which increase the scores for transfers and appointments represent a third source of inefficiency.Moreover, the institutions which offer this training are not subject to quality control.
26. The policy implications are two; first, appointments must confront a structural problem of oversupply of candidates in the system. This in turn is related to the benefits and privileges teachers receive vis-a-vis the lack of responsibility in their work. Second, the transfer system generates inefficienciesand some inequity, both of which need to be addressed. 53 ANNEX 3 Policy Matrix
SECTOR POLICIES AND PROPOSED PROJECT ACTIVITIES
ISSUES POLICIES AND ACTIONS THE PROJECT Quality: need to improve equitable access to quality educational services. Need to improve pre-primary curriculum Curriculum adjustments: more active and child- Supports a new curriculum, in the form of manuals for educators centered. Proposal of learning situations to be and parents, and radio programs for teachers and parents. developed by parents and educators.
Low quality of multigrade primary education Establishement of an adequate methodology for Provides appropriate teacher-training and educational materials multigrade teachers and students. to all multigrade teachers and classrooms.
Lack of textbooks and educational materials. Set a policy for the provision of textbooks and Provides textbooks for 41 percent of the students enrolled in educational materials for the poor. basic education (1-9 grades)
Need to improve equitable access to the nine Reorient the current scholarship program to target the Provides scholarships that target basic education students from years of education. poor, in order to improve the promotion rate from sixth the poorest correginmientos to seventh grade
Lack of a standardized evaluation system. Institutionalization of the evaluation of student Establishes a standardized evaluation system. achievement. Coverage: need to provide equitable access to pre-primary. Low pre-primary school coverage Develop a cost-effective strategy for the expansion of Supports the expansion of the non-formal CEFACEI model. pre-primary school coverage. The government subsidizes education services for the poor by paying the community educator on a per-student basis.
Institutional Strengthening: Weak capacity for planning and formulating Strengthen planning and policy-making capacity within Finances studies to promote the formulation of policy reforms policy, and outside the Ministry and to encourage the specialization of people in education policy issues.
Finances the implementation of an MIS.
______-. 1~~~~~~~~~~3.
P> 54 ANNEX4 Targeting
TARGETING
Basic Criteria
1. The main objectives of the Basic Education Project are to improve the quality, efficiencyand equity of Panama's basic education system. There is a strong relationshipbetween access to educationalmaterials and the socio-economic conditions of schoolchildren's famiLies. Children of poorer farnilies cannot buy the books, notebooks and other learning materials not provided by schools and therefore they learn less, repeat grades and eventuallydrop out.
2. In order to compensate for poorer children's disadvantages in terms of access to better quality education, the project will focus on townships with the highest levels of poverty according to representative indicators: poor housing conditions, less access to educational benefits, and nutritional deficiencies. The percentage of indigenous population, as well as the prevalence of poverty in overcrowded urban areas, has been taken into considerationfor targeting.
Methodologyfor Project Targeting
3. Townships were chosen as targeting units so that project interventionscan have the maximum effect in poor areas. The country's 510 townships (corregimientos)are distributed among 67 districts, which in tum correspond to 9 provinces. Township populationsvary from 88 inhabitantsin Playa Chiquita (Santa Isabel District) to a maximum of 199,400 in Belisario Porras (San Miguelito District). 69% of townships (353) have less than 2,500 inhabitants,while the 34 townships with over 15,000 inhabitants(7%) contain 51% of the country'stotal population(1.2 millionout of 2.3 milliontotal inhabitants).
Selection of Indicators
4. Three types of variablesper township were used as poverty indicators:(a) housing quality,according to the 1990 Population and Housing Census; (b) access to education, according to 1993 statistics by the Ministry of Education; and (c) nutritional status, according to the 1994 Census of Students' Height by the Ministriesof Education and Health.
5. Housing quality is reflected by the percentage of homes without drinking water and sanitation services and with dirt floors. Access to education is gauged by the percentage of children between the ages of 6 and 15 who do not attend school and the percentage of students who repeat grades or drop out of school. Nutritional status is indicated by the percentage of the populationbetween the ages of 6 and 15 whose height is shorter than normal for their age.
6. The total population of school-age children (between the ages of 6. and 15) is used as an additional variableto allow the inclusionof townships with high concentrationsof disadvantagedurban inhabitantswho would not be detected only by qualitativevariables. The percentage of the indigenouspopulation is also used as a compensating variable to ensure that priority is assigned to small townships with a predominantly indigenouspopulation. 55 ANNEX4 Targeting Consistency of Variables
7. Because the variables selected as being representativeof poverty conditionsare so diverse, they cannot be directly combined in a composite index. Some represent percentages of the number of homes, others are percentagesof the school-age population,of school enrollmentof total population,and yet another represents absolute populationnumbers. In order to compute the compositeindex of poverty, the values of all variables have been converted to a uniform value scale of 0 to 100. The numbers used in the targeting table are the convertedvalues, not the originalpercentages or numbers,which are found in separate tables.
8. The highest originalvalue of each variable(which indicates more unfavorableconditions) is represented by 0 on the converted scale, and the lowest original value of the same variable is represented by 100, regardless of the variable's original value range. For example, for the school-age population variable, the highest value of 28,889 becomes 0, and the lowest value (16) becomes 100. For the variable of school-age children not attending school, the highest value of 86.42% becomes an index of 0, and the lowest value of 2.3 5% becomes an index of 100. Intermediate values are calculatedusing the followingformula:
VN = (VMAX - VA)/(VMAX - VMN) x 100 in which: VA is the originalvalue, to be converted to the new scale; VN is the new value resulting in a scale of 0 to 100; VMAX is the highest originalvalue of the variable; V\MIN is the lowest originalvalue of the variable.
9. The formula inverts the order of the values to try to arrange the resulting index in ascendingorder, from lowest to highest. This is an arbitrary decision since the same result would be obtained by converting the values in the same originalorder and arrangingthe values of the resultingindex from highest to lowest.1 The resulting values, converted to a scale of 0 to 100, represent indicators of the relative position of each variable'soriginal values within their respective range, and may be combined as such in a composite index using arithmeticalaverages, which could not be done with the originalvalues.
Computationof the Composite Index of Poverty
10. The poverty index is the weighted average of values converted to a scale of 0 to 100 of all variables used. Equal weight has been assigned to the set of population variables(school-age and indigenous,which are of a quantitative nature) and to the set of qualitativeindicators of poverty conditions(housing, education and nutrition)in order to ensure that the project's benefits reach the greatest possible number of persons in the poorest townships in rural and disadvantagedurban areas.
11. The weights assignedto each variable appear in the upper part of each page of the table. The variable for homes with dirt floors has a weight of 20 because it is considered the most characteristicof extreme rural and urban poverty. The other housing and educationalvariables have a weight of 4 each, and the nutritional variablehas a weight of 10, to complete the combined weight of 50 for this set of variables. The school-age
The formulato convertthe valuesof a variablein the sameoriginal order would be: VN = (VA - VIN)/(VMAX - VMN) x 100. 56 ANNEX 4 Targeting populationvariable has a weight of 40, and the indigenouspopulation variable 10; these two variables add up to 50 and have an essentiallydistributive function in calculatingthe index.
12. The result is shown in the attached table, with the 510 townships arranged according to the composite index of poverty. The lowest index (45.95, top priority) corresponds to the Penia Blanca township with a population of 1,986 in Chiriquiprovince, while the highest (98.90) corresponds to Otoque Occidente with a populationof 210 in Panama province.
13. The order of priority resulting from the poverty index allows us to target objectivelyand safely the investments of a basic education project according to selected criteria in order to achieve the proposed objectives of greater educational quality, efficiency and equity. Among the 32 poorest townships is the country's most populous (BelisarioPorras), a highly disadvantagedzone on the outsldrts of Panama City. However, 50% of the school-aged basic education populationlives in the first 238 townships on the list (47% of the total number of townships), meaningthat a large number of scarcelypopulated rural townships, as well the most important disadvantagedurban population centers, hold top priority positions. These also include all townships with a significantproportion of indigenousinhabitants.
14. The project will target 185 Corregimientosout of the 510, distributedover the 68 districts covering 41 percent of the school populationfrom grades I to 9. 57 ANNEX 4 Targeting
PANAMA BASIC EDUCATIONPROJECT PROJECT TARGETNOC RANKING OF CORREGIWENTOSBY POVERTY INDEX USING INDICATORS OF HOUSINGCONDmONS. ACCESS AND QUALITY OF EDUCATION SERIOCES. NUTRITIONAL STATUS. PROPORTION OF INDIGENOUS POPULATION AND POPULATIONDtENSITY OF AGES S TO 15 ALL INDICATORS CONVERTEDTO SCALES OF 0-100 RELATIVE 4 4 20 4 4 4 10 40 10 100
HOUSINGINDICATORS EDUCATIONNDICATOR9 NTRITION TOTAL [ COMPOSITE RANKINO CORREGUENTO DISTRICT VWTHOUT IATHOUT WITH % POP 16 S IS POP AGE 4-15 POPUL BNDIOE INDEX CU ENROLL POTABLE SAWTARY DIRT 6-15 NOT SCHOOL SCHOOL BELOW NORMAL AGES NO J aNROLL GRADES WATER SERVICE FLOOR IN SCHOOL FAILURE DROPOUT HeHT S TO 1 PUL MENT 1-9
P.A. Ibnc Tol 0.00 0.40 0.00 20.63 46.e9 44.40 10.30 9U01 0.89 4505 1 683 6W IAu,ur4 ChkIQLAG-ad. 0.00 1.02 11.99 0.0 73.11 20.42 0.00 9,.21 0.90 46.21 2 972 190 Pi.dra Rob Chiqd Grnd. 1.27 2.12 10.66 14.07 90.25 123.2 1t.40 00.29 0.09 47.39 3 12W4 422 o.. d.o 0.1. S- Lor,n.- 215 323 1.79 33.07 70.47 41.94 23.90 96.48 0.94 47|46 4 1676 582 Holo C.jo-ro San Fil. 0.00 4.57 3.16 25.12 90.27 1.23 30.40 98.62 0.71 47.04 5 2126 250 Halo PJbn San FPl 18.04 11.11 0.57 24.10 62.64 24.18 18.20 98.45 0.48 47.00 9 2422 349 Sit9 Prado TolO 2.89 3.85 1.92 43.22 67.60 01.S9 10.20 96.04 1.41 47.95 7 2156 729 C.-oao-co Sn Lor.n.o 1.40 0.59 2.40 34.00 51.46 459.0 23.70 97.52 2.07 48.10 * 3U31 672 C.-o d. Pmor Sn Lor,nao 0.40 0.91 1.21 35.46 57.6 34.02 22.60 98.30 16.90 40.65 9 4098 267 Crbn A.nb. San Lor.n-o 0.34 6.51 1.96 14.04 70.77 52.80 37.90 96.23 1.03 49.33 10 42n 191 HNAoChd R do 10.24 14.01 1.23 20.21 52.02 26.e0 27.60 97.35 10.72 49.41 11 4650 61 H.do Jobo S-n Fiat 0.70 10.06 1.04 S737 67.06 13.29 U2.0 29.05 0.00 49.44 12 514S 1ff Cowo Pu.r.o To. 4.69 3.74 1.40 44.75 70.19 51.37 26.40 97.73 50.4 49.50 13 5765 920 C-b.)o San POlo 0.69 1.70 3.16 34.00 33.94 9.010 04.90 961.23 0.04 46.63 '14 9535 60 MUa.c. To 12.50 12.75 1.10 31.00 74.04 47.13 2.909 97.20 7.49 46.93 1s 6293 438 ChIohI. TdN 3.97 13.74 3.43 57.10 60.99 56.06 25.70 95.40 8.39 50.07 16 7007 1214 S o Dupl San F- 4. 15.22 17.S6 1.76 40.30 77.9 2 6.4 S1.00 9.34 1.44 10.4 17 T66S S8 Ca-o llg.o. R...doo 10.43 20.44 3.20 A69 79.3S 49.04 29.090 94.14 0.38 50.6 19 0763 a" Qubrad. d. Loro Sa Pnlo 10.40 31.43 0.05 40.42 77.74 49.45 26.30 99.20 0.92 50.00 19 6944 1i1 E.pInd. d. Choroh. San Lor.o 3.26 9.06 S.26 33.51 78.04 60.52 40.90 33.50 4.50 52.37 20 9260 S16
Hwo Juo San F. 1.10 57.14 4.02 96.34 72.40 4.44 25.00 99.37 e.25 52.07 21 9409 11 L.-ro Roodo. 30.46 32.49 6.74 54.04 77.30 33.20 24.60 91.66 2.91 33.06 22 0727 206
Aingd SIn al.. 90054 40.30 11.71 9We7 70.93 U.31 19.00 0.63 3.03 31.24 23 12361 2614 TYb.uc1 S-n S6- 7S.S3 0.72 11.44 60.SS 6.44 71.04 24.40 91.66 0.60 S25.7 24 177S W11 P0(10d. C. Todb 29.07 21.00 2.07 62.80 60.10 750.6 25090 99.19 S.S6 53.47 25 14145 34 5017 San Lor.-o 150.6 7.77 7.40 *7.41 73.20 57.51 42.00 90.01 2.44 53.2 26 14914 646 AXo Cabl-ro To16 15.20 32.33 6.0 74.21 74.04 64.26 30.30 67.73 0.71 54.50 27 1946S 951
Nagan6 S-n 9l 32.65 69.30 14.73 51.02 75.96 73.50 34.10 U0.74 5.50 U.53 n 17703 2233 Car.o CaA. Tob 5.15 10.10 32.76 47.09 Ss.9 04.07 23.30 97.04 46.65 5.60 29 10131 450
Agu. d. Sl.u C4 0.75 21.30 1.31 52.03 u4.54 72.27 23.10 07.02 45.24 U4.65 30 107900 37 C5-o Ig.A1.. Toli 7.36 11.04 3.29 90 72.25 73.38 29.20 90.14 323.4 59.36 31 19263 503 Pl-loP1, Sn -.o 96.69 87.85 96.73 94.20 92.58 78.28 9.10 0.00 58.67 54.71 32 Sass0 19568 Halo C-o.on San Polo 1.07 19.76 2.62 51.61 83.20 43.03 37.30 989.1 52.04 07.00 33 3613? 252 El Prado L.. Pr . 25.47 41.74 7.07 7L0S 73.29 70.0 27.00 95.12 49.3959 8.S9 34 40705 1Ws3 G..,o,onl Chqi Cr-nd 0.52 2.62 51.11 41.39 59.20 54.94 2U.70 60.4S 1.21 s073 3s 40996 291 C-o do PMb. C3az.. 6.09 24.42 2.66 7519 73.69 70.49 25.40 98652 900.2 60.90 36 41905 909 PYoy Plnog- 0.00 0.06 55.50 38051 0.00 4S.00 47.10 90.73 10.73 6e.94 37 41941 SS C-o 11.10 Tolb 11.04 29.19 8.11 87.99 74.18 67.06 52.70 97.02 5.2 * 1.01 38 42e95 732 C.o.o d. C-. L.. Pr-.. 9.37 23.42 3.123 6.1 04.06 74.56 37.10 07.41 4.37 61.52 S3 41225 530 Calo-bor 1o1 dal Toro 0.00 4.76 5.00 34.72 3.05 73.91 37.70 97.33 13.35 93.21 40 43856 633 EJ 760 L.. P.I0. 41.22 50.27 1o.01 70.91 77.80 9.54 36.30 97.96 93.03 63.52 A1 44446 590 r¢u-O rl-n- 0.0o0 1.75 40.92 6S.61 5s.46 34.56 41,0o 9.04 0.13 63.54 42 44386 140 Sa JO.. C.obS- 17.52 12.07 4.00 40.20 533.4 66.44 65.20 99.30 100.00 65.21 43 44748 1so Gaou 0 Gono6 So .s FP 52.16 5.45 Z.67 61.10 53.96 70.63 4.30 06.4s 100.00 65.40 44 45125 377 Lo. Vo.A. C.n.. 27.70 42.17 11.52 74.02 67.60 75.41 40.30 60L02 65.06 65,s9 45 46s20 700 CmoO so56 27.n9 20.77 3.30 61.35 67.51 7z.96 s5.00 90.70 90.641U.01 46 49063 26 CaIdon1. Son& 21.15 23.56 3.54 77.04 72.55 66.56 55.20 90.20 00.31 65.n 47 4U43u 343 El N d.no Ro 47.53 54.94 25.03 04.73 70.00 33.60 3n.5 66.28 58.77 94.26 43 46533 S? El Rko6n L". P.r . 16.56 45.43 13.59 30.40 70.33 69.95 33.00 07.92 9.6 641.40 469 47167 634 Tobob Boo. do4Toro 6.34 3.66 96.50 45.so 60.60 73.77 33.70 94.62 0.76 66.71 so 40404 1297 Q-abr-d. d.1 R6..o L.. Mo 10.74 18.46 8.43 71.73 60.73. n 4.34 53.6 67.87 100.00 44.92 s1 46974 SAO El CuIy S.0 6 24.92 47.95 9.10 73.02 73e59 76.e4 30.60 99.46 68.1 67.00 52 4626 254 Ch-po La. Mb6 17.432 22.5 10.29 32.76 69.14 69.26 60.00 99.96 100.00 67.21 92 49546 329 Lo. HNIo. San rno- c 10.90 32.71 6.10 72.04 64.69 70.70 94.00 00.73 90.72 67.42 54 46751 203 Cab...,. C.3o. 26.66 46.48 22.27 72.66 73.15 75.27 45.30 02.18 996.0 67.99 ss 516U3 1632 Eltoro L" . 21.72 29.34 9.14 46.31 62.34 65,44 o0.00 96.83 100.00 68.02 s 51037 254 5.0 Juan Sa an l.*o 3S8.8U U.62 10.28 74.62 71.07 75.53 51.30 96.29 100.00 68.37 57 52971 104 Rod-o Vbab sonO 35.37 20.62 5.54 58.49 71.16 74.50 75.00 97.65 100.00 U.57 Ss 5S94 42 R.m-n. Sa Panol.o 39.76 40.26 15.39 74.14 67.06 75.06 41.60 08.43 100.00 61.62 56 52716 224 0 Copi 0L1 12.61 27.93 17.24 61.37 60.55 7z.66 36.20 90.90 100.00 ".6n so 54001 333 El Liano Chpo 38.09 43.15 U.10 36.20 05.01 04.48 73.10 0.03 60.22W1 n4a054 66.20 2003 Oor L. M... 10.13 29.70 13.10 63.22 70.10 70.410 50.30 60.94 100.00 60.54 62 546862 633 La. H . Hal 30.47 34.569 1e.20 5s.s32 68.6 76.78 58.20 66.6 10. 60.16e.4 63 363 CNgI4dAdAnb. pw-co4 27.31 03.21 17.25 96.60 01.16 76.83 52.30 32.00 100.00 69.41 U4 s8633 168 Chi Grnd. Cpi. 23.92 71.37 15.92 65.46 61.31 7z3 53.70 95. 10.0 6.7 5973 11 San M-I. 41.31 3310.17 13.53 76.04 771.9 80.05 53.60 06 .6 10.0 9.9 9 60420 601 onoI Cbbro. 9.75 25.62 10.28 70.01 74.04 66.26 73 19.52 w 0.0.00 70.01 6 403 115 ad Mlond. SonS. 13.9 13.04 2145 75.984 as." SOA4 0S.0 9 '.3 70.11 6s 087s 0 RI. Cono Ch"4ga 7.38 10.52 34.96 63.0 63.46 74.59 74.00 07.76 79.04 70.15 s0 61400 525 58 ANNEX 4 Targetin RELATrVE 4 4 20 4 4 4 10 40 10 100 WEIGHTS I HOUS INC OATORtS EOUCATMIONOiCATORS NUTItfiXOH TOTAL rO AtIlOSIT iiAIN11,11 CORREGNUENTO DiSTRiCT WYiTiHOT WITHOUT WiTH POP %o % _1 P;OP AGE i- 15 tJrL ND-CE NMDEX CIO" EHIROLL POTABLE SANTARY DIRT 6d15 NOT SCHOOL SCHOOL BELOWiiORMAAL AGES NOUS ENROLL GRADES WATER SERVICE FLOOR IN SCHOOL FAILURE DROPOUT HEiGHT 1TO 15 POPUL imEwT 1.0
L. C..r Mno.4o 11.70 35.11 12.42 79.63U 2.0 5 742 4S0 0 T71 10000 7010 70 :1467 07 El Cool. C..b,. *14 51.42 5. 78 4L70 W0.04 75 44 72.10 W0 54 100 00 70 29 71 0110 143
S E"-oIo LM". 30.51 41.02 10.29 79.09 77.00 77.10 55.40 17.62 n.u3 7047 72 02111 501 Cnq.in,uc ChiIqd Gk-d. 20.39 5.90 00.17 4.051 72.8 04.03 3400 0004 294 70.59 73 43120 1000
Juay S=n ,44o r^ 40.5U 51LU51 30.40 50.54 71S. 31.54 SS.50 n 45.31 7t0.7 74 43274 15i L.on.. Loc MM,.. 50.11 42.20 1. U l 44.07 70.22 72.50 04.45 100.00 70.S5 70 050 240 Pum. L-. Boo... d. Toro 7.41 .26 05.55 74.5 709.23 73.81 7.70 44.S7 17.37 71.10 ?9 63707 1U El P.A... Ok 42.48 5.29 17.24 70.44 7.53 5il.28 07.50 09.45 100.00 71.15 77 44051 3 CW ...... L.. P . 0.390 60d10 2270 79.03 70.71 73.04 54.40 94.35 02.1 71.23 70 65070 101 Rio hdio P.no.oP,6 17.04U 90. 23.25 6034 02.20 77.40 5i.40 95.50 100.00 71.28 74 44104 1014 C..b,.. d. 040J4Oro S5. 00.1 7.1 73.40 5 1.2U 7i623 79.30 00.14 9J.32 71.44 00 6*ue 162 Cobt.cr. ChMkqc G-rd. 20.7 L 153 02.01 5121 70 77 `U.U 40.90 01.82 23.90 71.47 1 U040 1774
LI-no nd. L.M... 29.21 33.17 27.43 60.07 UJ.90 7mL14 a.o00 9.44 U.7 71S2 S2 9U211 171 El Coo.o Ccoir 31.S1 74.30 10.27 7268 01.90 7Y.4 0d.20 9S0.4U 9.0U 71.4U3 216 1005 L..- iil -.. C.,o 0.323 5 20 17A6 70.14 47.4 U 73.50 24.70 47.33 14.14 15.4 U U4 4474 2 524 S-,,, C,ut d. Chki,1. Ch.po 13.44 20.25 27 00 U6.04 7E.34 *2.70 71W0 9.32 97.7S 71.72 Ss 70103 U41 P--oont 48.12 72.00 21. 77 97 70.07 77.40 01.70 24.32 100.00 71.78 se 71104 1001 El MTA.n L.. Pkm... 305.0 GS." 1.39 70.05g 4.27 73.24 S. 09h44 94.2 72.09 67 7149 302 Eli MMon Son 37.5 47.00 22.0 70.71 77.10 7 3.90 07.5 4.911 72.3 71Un7 491 10. C.,.o. 4. P4. Lo. P.o.o 10.35 02.14 SJS 47.61 7W03 82.2 43.44 00.4 100.00 72I.0 U 73I19 22S iAoni_. C.ICbr. 6224 42U6 27.90 U5.31 7.38 304 40.00 00 100.00 72.59 tO 72274 70 91.,.II.L U.... 55.60 60.2S 20.04 2 75 90.71 7?4. S01. 07.91 00.07 72.4 1 7724 450 CaS c... Ch.pIg- 36.79 40.16 04.05 97.21 74 64.0 Si10 90.03 02.9 72.9 052 70S41 2657 _on, 0-l3.53 74.24 S.04 9 9.41 84.7 71.17 02.i0 00.30 100.00 72.U 93 75571 1U0 G..br.d. d P1.d,. To1l 3.60 02U10 24.01 :1.39 82.30 07.76 00.00 94i0S 90.1U 72.74 04 70479 209 L.. Hu..... Rb.. J.."t. 15.15 *3.20 12.4 07.39 74.43 7n.u4 79,90 09.09 100.00 72.04 Is 70237 300 Z.Poli1o L- P.M. 28.43 42.01 19.20 7IL0 01.90 4.90 9.00 00.56 7 .76 72.01 d4 79447 40 P0.1 Robolo ChidquO G,.nd 37.53 322.2 0 .00 4217 73.44 57.4 49.00 00.44 2155 72.01 07 77387 740 C-no L.ro O.u 3.37 45.02 21.73 76.4 12.00 77.87 730 9.20 100.00 73.00 Is 775 44 LI.,L d. C.KI. M-ib 20.77 4.N 24.T 75.4 711 47 74.70 49.04 ff.f 73.10 ' ust o
Ponno Vlda L.. PW- 40.50 44.73 3.025 70.92 741 9 24 S25470 U40 44.62 73.42 100 nn74 324 9.,h. A-ui oo... d. To.. 22.40 iL79 04.90 0.0 60.0 7 4.33 S0.90 U04 14 74 n251 101 70070 1102
Jhgunudo Somb. 10.42 2.0S 100.00 7117 04.01 77.7U 3080 n9.46 1US2 72.62 102 9S L. Solod.d Son 06.20 9.7 19.74 77.70 77.74 71.72 U4.90 44.50 95.43 72.77 103 9044 391 C.bo..r. *-ni 75.21 01.8d3 70.1 U.4 00.32 71.72 7 00 61.00 12.13U 71.2 104 ag"0 4404 M_.,ol Od.g. CS... 0.00 6.74 04.83 74.78 97.06 72.63 4id40 0120 14.23 74.20 105 00240 300 Sn Ju.- S- Lo-no, 42.55 400 44.80 90.20 75S37 01.20 04.70 9U7. 51.02 74.2 106 0073 440 B... Ch.i. S.n Lo,.o 12.04 2.17 44.30 *S.41 67.00 34.49 S.0 00.W3 01.01 74.24 107 00901 L. Pd b:. Lo. Poz.. 42.52 51.00 9.24 74.4 7&22 759.1 TL20 hL49 100.00 74.27 17 0104 293 R1l siblo Smbu 23.30 4.35 04. 51 73.0d 47.22 5S.U 00Ldo d4452 17.9 74 U 10W 9121 149 Tr,id.d C.pi,. 2.03 U 4.04 30.10 44.2S 71.90 74L14 04L70 0n0 0005 74.32 110 01031 410 rob.,ndo Monlijo 44. 1 5S.24 21.S5 44.10 0 .42 72.01 0.20 00.24 9.127 74.30 111 01979 17 l.lonoCrG.n. .LP*A.d. 39.14 73 03 52Lff 4. 02.0 77.05 62.40 95.31 100.00 74 .4 1122 24 1101 To.b,. Pnonomb 53.00 85.21 34.U4 70.02 *;L20 78.42 41.0 I47 100.00 74. 4 115 04041 1792 El Poc,.,. Clobr,. 0.26 57.03 6.0 9. 90.00 76.1 74.20 g0.36 00.00 74.4 114 94802 191 Ciho Gualno,. Cbm.o 0.00 9 02 0.02 91.2 05.00 71 42.0 04.1 40.77 74.74 11 45471 91 . L.gn-. CWIobr. 40J.4 54.27 27.27 U.42 6 7.00 71.4 12 10.0 74.74 110 0511 14 Ch,.r C-ob,. 77.g4 04.L0 30.50 73.02 47. 7227 55.70 00.04 00.05 74.0 117 0102 401 Rio Gr.nd. So- 52.60 04.97 28.7S 02.43 00 71.9 74.90 4.76 90.71 75.02 11U 07022 020 14.. d. Tol. To.1 3231 73122 34.01 79.40 75.0 74.59 51.40 00.213.S4 75.05 11 ro7207 US Li0. Rilo d J. 97.00 74.00 2369 74.4 92.7 7732 40.00 4.750 100 75.05 120 97251 44 L. Yog.d. C b,. 64.71 54.41 2. 02 9.07 90 44.92 67.230 00.01 100.00 75.11 121 07570 310 L-oMonl4jo 2.70 24.32 36.22 7. U 3.83 74 73 75.00 0 .75 100.00 75.20 122 719 4
P.... 0 . 2.01.00 250.9 52.02 21.47 00.64 79. 75.55 70.70 07.10 90.02 75.27 123 0340 770 El A. 5n,4 I6012 00.09 24.17 75.00 42.01 75.00 73.00 47.04 60.97 70.45 124 SS0&" 400 C.b.c-.. Chgl..dnI. SI7.S 92.04 5. aS 7dL03 52.L4 67.02U1.90 71.0 04.05 75.55 125 100222 710 Mlogoidbn Ms..... 4240 n25.2 10.40 6 .62 37.24 69.07 100 00 40.79 1D*.00 75.2 126 10n2e 65 Y9 0o Pi-g. 0.00 2. 57.21 7 20 W0.71 74.S2 00.0 09.2 22.0 70.0 127 106239 44 Ploo^ -so1. P... 60.04 1S.70 44.45 eg.00 73.4 0*2.42 44.00 40.0 U 2710 70S. 1 120 104427 2n d ,Hond.O Me re.80 54. 71 21.45 93 77. 74.44W"O."i 0..I 1s00I.00 75.85 120 106754 121 T.b..io MoonijO 04.7U *2.50 20.30 91.00 72.20 63.32 7.20 04L01 100.00 70 130 10442 104 S. Jo.D l. A6. 2.17 04.43 230 03 7.32 77.37 04.70 42.44 100.00 74.02 131 109150 1200 A,o..o..n. L. Cho.r 4.00W 2.00 313 70. 0.53 n.7 970 9.75 100.00 79.03 12 10 3 Lo" A'g.i. G.Cub4.35 . 60.00 17.02 5. U 0.32 74.59 so.90W 9.39 07.5 79.11 123 I1032 116 Cabo,. ChhM.n 22.06 34.77 51.15 73.72 02.05 71.23 .920 07.90 93.04 70.17 134 104823 504 EsphoAmrrr.ilo M...eo. 40O. 415.0071. US4.50 100.00 9045 100.00 0.45 100.00 7.u 155 104142 1 Lo. LI no. Ocu 25.14 Si.04 30.28 32.0 04.23 70.01 U400 97.07 100 79.52 130 107502 71 L.. Crn.br p P.n.mb g 4.00 57.02 48.00 04.12 91.25 77.46 3S7.0 .525 0. 2 7 76 57 127 118392 0210 Yool:. PMog. 5se.9 04.54 00 71.52 70.13 76.37 0S0 02.11 01.20 76.6 4 13 121 225 C.b.c.,. D-id 07.11 4.32 93.93 3S7.32 92.73 74.32 00.20 51.73 03.04 76.77 130 134217 13008 T-eIl Ch.pbn. 27.84 7.56 0. 7 77. 07 40.11 71.17 49.60 0e.6 23.a4 70.73 140 I345S3 34 H-- L.Chon.,. 30.57 02.23 44.34 70.34 0 474 0.46 2 350 4.0 30.44 73.73 141 134920 45 Qu o Morlijo 47.04 34.15 22.43 07.6 93.05 04.22 02.00 00.12 39S.1 7I .S 142 134326415 Coo.. Los PN . 5S13 69.05 27.79 77.30 U3.83 7142 73.00 00.09 072 77.12 142 135020 204 Chi do Lo. .4.. C .pi 50.W0 94.42 30.32 7 .12 0.01 77.32 04.0 077 0.72 77.27 | 44 13554 514 Copo1 Lo. Pmo.. 50.50 01.39 24.45 77.0W 2.70 7582 a s670 00.61 100 00 77.34 145 1353 U P.-. O1 604 04.Y17 24.22 73.04 I6 71.04 80.44 04.02 100.00 77.27 149 110544 231 L-FneEnosd Chl.W.p 22.17 73.01 40.70 72.04 7W1.3 640 Y0400 7.43 100.00 77.46 147 134u 93 El GOuASho Do-o.* 477 27.45 7.0U4 67.30 70 77 7i.00 40.20 97.99 *100.00 77.02 143 13715 660 CW-oobo,. S.M4. rb 35.14 47.10 00." 72.87 60.17 64.44 240 0H. 54.44 77.44 140 13004 037 59 ANNEX 4 Targeting RELATIVE 4 4 20 4 4 4 10 40 10 100 WEIGHTS I HOUSINOGIDICATORS EOUCATIONNDICATORS NUTRIT1ON TOTAL % COUPOSITE RAIKG
CORREGMIENTO DISTRICT WITHOUT WITHOUT WITH S POP 15 1 S POP AGE 6-15 POPUL NDIOE INDEX CW ENROLL POTABLE SANITARY DIRT 6-15 HOT SCHOOL SCHOOL SELOWNORMAL AGES NOUS I|ENROLL GRADES WATER SERVICE FLOOR N SCHOOL FAILURE DROPOUT HEIGHT STO IS POPUL NMEWT 1-9
Gu-nl San. 60.69 71.09 35.34 33.14 76,58 75.41 71.60 6.53 32.35 7771 150 132044 Su El Co.ezo Tonl 76.53 71.94 25.72 63.6 69.47 47.27 ano 6.52 100.00 77.n7 151 139155 111 La T.Ue ClbS.. 36.27 53.12 40.94 87.24 77.45 74.73 6.70 66.0 69.28 77.u4 152 136203 48 LoUb Lea Pan.. £5.62 76.70 32.74 65.12 70.03 77.60 74.40 99.29 92.16 7an23 153 136365 163 Jun ODz Pan 99.31 66.57 69.76 67.8 6.162 7n43 64.0 50.1S 962.3 7a24 154 U7640 :249 PIdra. Garde. La P1rb. 592.3 35.75 36.26 75.71 3.23 79.10 68.50 64.72 100i00 7136 155 14*339 646 E1 9-. Allay. 71.17 74.32 28.09 6.6S 61.16 71.28 7100 69.30 10000 7M22 156 U48513 1U4 JotS D. Esphia r m. Muata 99.666 07.57 64.99 65.68 672E 75.00 60.00 5.21 32273 71.3S 157 15609 7296 An-- 0o 50.37 4046 34LS. 62.7 U.75 7s0.n 6L20 916.4 100.00 72SS 15S 154S03 227 GuebL. Cha *.. h 63.1 8U.56 0 1204 62.44 65.01 E64.0 83 8o.6 44.66 72L62 159 150E5 2317 Coroz-l Meow... 59.30 51.74 34.04 70.07 6.47 6844 390 92.5 100.60 72.72 160 1SU421 66 Cascoera RI. d. Jesw 47.53 75.18 43S5 37.65 7S.S 71232 6.70 07.25 68.75 72.33 161 15s8 547 S..bC, Ch piga 33.98 42.94 835.82 5.27 50.10 68.39 44.90 99.28 61.69 783 162 156587 616 LU.o-. a"i 21.12 42.71 51.09 63.12 19.02 57.38 76.80 99.12 97.94 79.01 163 15s3 248 El C.dro L.. P.zo. 17.73 76.60 29.51 .532 63.32 62S.1 92.30 91.70 100.00 72.10 164 15S961 6 Maieb. Pad.aI 93.90 $636 3.6S 33.7 100.00 6.46 100.60 62.97 100.00 76.31 165 156811 1 L. Mon.-uela Al-y 52.n6 54.64 33.60 s192 7443 74.45 61.70 o6234 60.72 7.43 18 160602 91 0,. deDc t, M- -e. 58.16 S47 3s36 64.17 94.36 75.SS 8170 96.38 100.00 7.48 167 164112 110 Qu-. D-vd 17.45 70.36 S344 7.57 85.91 63.39 70.00 9126 62.59 72.47 163 160334 2Z2 goCa dl Mlac. San L-renz 32.41 6.10 46.42 6S.72 60.36 76.50 7.a10 9.712 63.29 79,68 169 1i0s 265
Sat Loranz. Sa Lorn 82.35 n2.03 57.64 77.2E 8133 67.76 44.20 93.76 963.7 72.1 170 1S6 3324 TeIn-d Chapga 5.97 2.N6 95.50 74.63 41.54 64.87 7s30 96.40 57.14 72.31 171 161021 158 Cab-e 046 60.46 70.72 34.34 7n236 30L.6 asS saso 64.86 100.00 72.64 172 161332 211 CLofy. An.on 77.40 93.15 33.24 71.23 81.25 60.37 71w 92.34 100.00 72.u 172 1s618 387 Par U.La. Table 37.55 70.83 9.5 33.61 6.35 6.46 160.00 160.60 100.60 79.64 174 161603 14 lagual Le To.. 0.00 6.17 38.46 57.05 100.60 62.13 160.60 ".07 100.00 w0.36 175 U16S16 12 mayno La. Tabl. 44.36 62.00 35.11 63.67 64.27 79.23 96.30 99.53 160.00 30.13 174 181724 109 Ri. glad. ChtpIg 31.53 36.31 56.13 70.06 7311 7155 3.40 96.61 64.64 aLn 1n 16213 32" T hi. Dalaog 25.40 7.62 53.44 75.34 36.35 69.31 34.70 69.15 99.91 a.n 179 162167 134 Canal PlF.. S* FPratoa 49.53 61.58 54.53 33.67 W6. 60.46 50.00 62.73 32.76 62. 172 16Z0 63 El Gubo Cha.- 35.34 31.50 51.79 35.27 73.62 7177 67.10 62.64 100.00W0.30 160 163175 345 El Hw.a L. P54d. 75.03 94.55 45.31 71.68 33.20 73.61 72.20 94.03 130.60 65.38 161 1UaU 1463 Tc-nPatn 64.91 64.77 33.01 3.48 90.s5 77.60 39.60 63.66 625 604S 163 171n9 6161 El Plo.cho OtU 35.68 61.13 27.06 77.38 90.0e t.4 1i.co 99.S1 160.60 as1 1n 1n72n 38 Cank. Cpi 669.31 63.79 3S5.5 73.00 62.27 3.40 34.00 66.02 99.62 60.64 164 173455 226 A.. d. Gua. T-no 72.33 74.27 3ILSS 71.83 30.63 74.53 77.60 62.4 160.60 60.64 13s 17nS71 1 Pal nal P e.-A 67.83 36.26 5.09 73.48 86.35 78.55 65.70 60.32 100.00 30C. 136 175037 2386 La Ee-nada Saod 4.35 13.04 73.61 54.13 50.59 64.34 35.40 83.33 100.60 85.75 137 17564 17 Akrn_. Ch.tgdr.ola 74.41 75.65 64.62 73.43 71.36 75.33 46.30 33.36 60.33 65.72 133 17214 3960 E Calbaoo L.a Pozo. 73.32 78.03 40.67 72.64 76.67 7140 7170 0.57 160.60 35.64 166 1M323 116 C.b ... Sama Ph 66.97 73.43 45.91 31.30 60.71 7.34 72L10 37.72 63.03 32.5 160 179S13 S1 Play. C4qu*a Sav Isbal 35.72 2168 55.0 3n1.17 53.3 6046 73.60 32.n8 100.00 30.96 101 179533 30 L.a Pa-. Me ... 60.47 s5.1 34.04 7134 32.38 73.50 100.00 32.68 100.00 31.60 132 176032 s5 A-dr La Ch-re. 40.25 33.54 47.64 71.75 75.67 7n5a4 72.60 32.32 160.00 31.09 163 160o6 45 Gwus Soo6ron 4154 34.66 58.37 72e. 3.34 u." 72.20 99.ss 99.so 31.34 164 16017s 116 Bno4. C a" 06.30 4.60 70.23s 53.041QJ0 83.18 6372 60 .64 37.61 31.36 165 13o0 115 L A-n L.a P.. 72.74 35.64 32.13 74.31 8.20 72.91 72.60 33.70 100.00 31.47 1N6 1S97 77 Lsa. Cruz RaneoA 4610 6131 58.77 67.9E 65.31 127 72.00 37.38 3.00 01U43 197 1032 s5s Cab...r. LafiU.. 66.17 37.46 51.54 U7.0533.38 54.72 71U0 86.43 32.33 31.52 133 161710 329 La. Gi.a CS.a 63.4a 7138 47.67 s344 72.04 7sn3 72L.0 3281 32.50 31.64 199 1637 s27 C.b.c.ra SatlgO 37.33 87.73 60.37 36.60 00.65 72.10 30.40 65.n 63.13 31.61 200 163431 13o14 C.b.cara B dd.0 Ta.. s5171 61.32 99.35 72.37 3zos 713 41.60 35.34 58.73 31.64 301 163033 1306 C.b...ra Clab,a 60.33 73.33 47.02 83.70 7.34 75s14 8170 37.90 96.57 81.33 202 164103 454 JequS Chtpiga 52.27 42.33 37.62 33.70 5.S 63.56 64.10 3.S 45.00 3.0O1 203 194ss8. 45S La R.pr... LeeCh- . S15 906.1 33.72 7.11 73.41 76.23 100.00 99.05 63.54 33.05 204 154633 Peto Prh. ChapWa 14.78 33.17 100.00 76.36 4346 74.59 7120 93.53 42.86 33.14 230 164784 161 Proar.o SwtJ 44.76 33.03 73 30.21 00.36 6e21 31.20 32.33 05.31 33.S 204 1894 311o Puero OMaid Sa IN.$ 8312 39.1 5164 62.74 3a3s4 75.27 63.38 99.22 64.63 33.60 397 133130 336 C.b...,. 43.24 77.12 75.S 62.31 3S.70 6s3.3 63.40 37.65 54.7 3.64 203 199132 992 Obald. L.Ch-re 55.8 335s7 45.38 67.3 32.332 ne.36 3s.58 99.2 99.33 33.64 20 133n 116 94"gua DAvid 13.53 80.73 03.73 6155 69.17 31.12 37.5O 32.72 32.64 3.67 210 199213 51 Sate Tent. JU-A 924 67.21 S2.35 76.03 95.31 74.04 60.60 92.41 Os4. 83.6Z 211 139479 130 Pa d. Saves-.- Duali.. 7124 60.58 63.53 52.73 77.60 54.36 7170 03.51 100.00 6.u 212 13358 105 Ctb.... T7.4 62.70 37.58 65.30 32.73 3576 715S4 61.80 35.31 35.36 33.*1 213 200916 1335 Ae.hoe. Cha-.. 41.31 73.66 6143 75.34 73.44 68.56 77.30 99.43 100.00 3107 214 201011 33 L.a C-ato. La. Paz.. 31.21 60.64 5440 73.26 72.76 7 233 60.70 33.41 100.00 32.06 21s 201076 6 Carnogl C3h33 33.0 23 731 74 53 73.60nu 0. w3115.30 216 201136 Tao. Nlt 0.15 77.64 51.58 31.15 31.31 75.W 73.20 36.0 1W0.60 33.38 217 201433 354 Sadagatl Chapgan 3340 56.60 63. 5 76.00 90. 72u1 68.00 36.63 32.68 63.43 231 2301580 87 A.a.vl d. Dkhi. Bugba 44.32 1.90 4.35 60.3 3.2 714 36.70 6.03 37.1 3343 21 203249 16s Ju MD AZ6n e66.3 33.44 54.58 7n.40 96.74 7n.60 70.30 32.40 100.00 33.47 220 203470 224 Prora Pat ent 62.06 00 63 67.32 33.17 72.31 37.10 72.40 32.40 3150 221 204130 5460 La Raya d. Caloora Caaba 77.50 30.63 47.33 00.67 77.74 80.46 62.00 66.68 32.14 33.53 332 2z6o 7 67 BaShnO . 6.... d.1 Tn 42.04 33.61 6 .5 62.6 74.33 63.67 70.00 36.16 5172 33.58 223 203311 214 Pogaa Pinoga 0.00 53 32.38 30.36 64.17 73.ns 75.00 69.58 7s8 63.64 224 30S3 107 ehtt Chpiata 61.37 4. 373 764 63.66 73.31 77.00 68.33 73.42 63.6 320 2e46 468 L Maa. Mw . 60.53 68.35 SO.33 77.61 63.43 6444 69.70 64.s 100.60 63.76 228 29779 III El Moto - 70.73 35.17 53.74 77.57 100.00 70.30 70.00 3.n33 100.00 63.76 227 213007 30 taldo La Ch-ara 31.67 76.11 S5.64 78.72 72 3.831 60.00 6.532 99.36 63.31 223n 3210033 Sar Ch. 72.17 6043 s5.33 73.6 4.87 3347 76.20 96.141 96.01 63.6 239 210270 12 60 ANNEX 4 Tar etin WtEICHTVE 4 4 20 4 4 4 10 40 10 100
HOU94 C INDICATORS EDUCATION NDICATORS MfTRrTON TOTAL COMPOSITE RANKS O CL" ENROLL CORREGOMENTO OlITRICT WtTHOUT WmtOUT WtTH % POP A 1 PO AGE 6.1S POPIL NOICE INNDEX POTASLE SMTARY DIRT S15NOT SCHOOL SCHOOL *ELOW NORMAL AGES NOUS ENROLL GRADES WATER 3ER5 CE FLOOR IN SCHOOL FAJLURE DROPOUT HEOGHT S TOIS POP1U MEINT 1.3 21 2`1467 ChI-br 04.030.13 94.72 36.03 3*.47 75.41 34 20 73.00 93.53 33.S 2U1 210U24 1143 I-lv Alb 47.53U 6.23 72.*1 7.30 7.S4 71.04 70.30 35.21 99.09 3 93.D 212 21306e 64 .Jo Con"l Le Tbks 64.43 39.73 5S.21 79.34 944.1 *5.5S 16.70 990.S 100.00 51.33 S1" 23 21646 2 ColS dd.Non. ono. 62L12 47.40 76.75 71.24 71.07 71LS0 6410 97.7 100.00 |1.00 1000 00 t 224 2|.U61 3250 2 n.Laodoo awwd Dono..C 61.17 9 6.3D D9.11 33.33 34.27 72.40 9 ial. 21eES 46 Cuongo .4. L.bel 7n3 7.89 73.37 E2.4 74.1 E0 a.SS 00.01 100.00 34.0S 210 179 Rhco6n Qudha 3.45 312.3 52.93 93.10 94.07 79.04 71.40 *S.#7 65.57 U.05 24 217043 O.fird.. TNonel 72.45 73.93 46.23 74.55 01.20 74.13 6740 36.6 100.00 U.06 227 317240 137 4.15 2,2 217466 223 Be.get Do.W.6n 38.01 U.03 *0.10 71.22 66.04 70.92 696.0 06.75 68.00 23 2179364 5 L.o LlUAo. Sn Cr1o. 18.1 3621 61.32 70.07 3L1S 3w0 "500 67.33 63.5a u.15 213127 103 Cho0qn Ch.P69, 52.02 23.30 S1.A 02.L0 77.0 .20*S 72.50 66.45 73.10 64.20 240 97.47 04.31 241 21644 216 50.10.5 0..gba 32.76 94.30 S0.31 73.36 32.43 70.64 70.50 6.22 34.32 242 210S23 *5 Chkwn*d La. s 00.91U30 54.1 3.32QS00 02.39 77.13 03.60 0*.54 100.00 5530 PmI 07.37 36L03 06.S0 *0.43 W3.67 70.62 66.40 66.70 63.64 U.40 243 224003 P.-4 0 4.40 244 224168 120 Roeid. L.eChe. 53.01 91.12 51.40 76.62 12. 6546 607 629J4 99J.7 04.S4 245 224305 117 L.Lo.aU E* C1.0 91.92 95 03.16 70U.2 40.71 70.14 72.00 "47 100.00 03.94 U4.60 246 224345 40 iel. Crnod. Alr4. 22.30 5.S4 15.e 7261 W.17 03.6 07.50 39D64 247 224467 122 PS.. Chap. 77.25 97.69 603.4 32.33 75.52 70.27 S0.0 99.51 100.00 U4.61 100.00 34.67 243 224063 36 ChNoa Cht 36.11n.03 36.56 74.U2 90.55 73.10 62.60 95.56 U4.75 241 224040 17 PL. Ciohn Re hagwo 24.32 71.05 7l2.7 6.11 37.63 74.73 *2.D0 35.26 34.12 99.59 10000 4.80 250 225024 U 4 Flora. Tonol 72.39 63.07 57.00 73.50 76.71 7.33 67.50 251 225575 051 Croeko Col.o. 33.48 2.32 66.52 76.71 73.32 75.27 75.20 93.06 100.00 04.36 252 225606 31 El C.d&. Ma.eo. 60.21 74.05 51.25 32.7 8D613 34.10 100.00 99.71 100.00 04.61 253 225024 213 SvU. Ro.. b 16.54 32.97 66.54 67.15 32.49 *223 3.30 93.96 96.02 04.92 85.03 254 22535 112 M.ndoza L. Chrr. 48.21 03.22 46.00 77.63 97.77 7a3.7 100.00 95.32 100.00 100.00 35.05 255 226243 202 Cbo.ra T-no1 74.64 62.6 53.74 30.07 91.3n 74.45 00.50 36.73 30.07 254 226490 242 Go.yb.i eq ron6. 35.47 76.00 63.10 77.26 87.24 74.36 72.00 3 J.1 t0.2 100.00 D5.0E 257 226538 43 L. 0.1 Le Tase 932.7 73.48 46.63 74.02 93.77 80.46 90.00 95.04 65.16 25U 227137 Sao San Andri. Boaa 25.67 30.36 70.36 73.15 e0.50 77.73 75.30 37.02 6.a4 3e.16 253 227207 70 Leo Caeiodos F.. 9g.3 33.20 42.66 35.6n3 n3.32 606 *7.50 33.30 100.00 2 227502 295 L.. CM- (E0..1 P..& 32.09 90 05 54.0 75.50 es.31 74.36 35.50 94.St 100.00 35.24 261 223061 50 Cabaere DOn- 47.24 232.2 3s15 75.0 75.7 79.51 67.00 97.95 100.00 6S.2D 39.17 100.00 53Y 2Q2 22n24e 1n7 El Beb.dere Tesne 71.51 84.31 51.32 31.37 *D.59 76.73 32.50 223463 215 oe.d. Cup Pogna 0.00 11.66 94.05 76.19 67.35 73.23 95.10 35.27 63.50 85.37 2U3 204 23503 130 El P.4-no 1.4. u 4.85 32.20 52.00 30.53 84.37 77.22 60.00 36.04 67.51 35.23 100. 6ea5.41 2t5 220266 16s7 C.becer. Oeul 72.04 37.37 62.23 33.26 87.36 60.16 U4.50 14.11 33.41 65.45 266 220340 72 Gonoele VSoqu.z Chbt n 19.44 2.73 e1.1 70.62 62.76 74.73 320 395.2 6S.52 237 2320f2 Y49 Oom-z *ipbm 235.3J 4.30 95.02 77.73 92.23 73.42 37.70 66.05 n3.01 60.51 268 230610 g0 L. Trone. T-nol 6.23 7D.57 U4.41 70.36 67.26 63.21 100.00 66.52 100.00 L.. MwU ko. Chepo 63.76 76.56 87.01 36.05 87.09 75.55 73.50 96.96 33.02 35.92 263 221402 53 3S.76 270 231622 no Sant CI_ An.h 74.32 04.46 61.74 30.64 31.75 30.46 72.30 98.37 100.00 99.25 D5.79 271 222240 022 L. E rgab.l. 27.43 60.J3 03.03 79.79 83.47 79.10 17.00 37.01 35.87 272 221132 *97 C.be.era edo 31.62 34.45 6 . 14.3 6.902 63.72 75.00 97.71 33.42 35.31 272 213759 627 M-te Lhb R.na e.61 77.40 84.41 73.62 63.61 35.35 64.52 75.70 95.61 66.56 100.00 15.97 274 234222 574 Ceboer. Lee P.... 76.12 3210 SS.72 67.20 73.76 73.51 67.50 96.27 35.99 275 224578 245 El Ar.d. La Che.r.re 65.06S 9.77 593.4 77.U4 67.19 75.41U350 9J.35 9963. S,lo"-". Cold.. 72.20 37.12 66.21 76.73 36.20 73.91 75.50 37.62 100.00 36.01 276 215106 023 El Ca-a Tonel 31.35 31.55 57.34 62.00 63.17 72.40 36.60 36.46 100.00 36.02 271 220401 335 06.07 270 23573 247 Sen Cubee D.cod 43.03 36.0 67.66 32.40 63.08 30.40 7S30 7T." 5.23 39.03 36.17 273 223210 2401 CSb.. rSon 32 .66 93.72 72.25 30.31 76.71 76.00 7n.0 *1.S4 019.07 36.10 23 2S101 6S0 C.ber. Guhet-a 67.12 5.33 6U.01 31.97 90.26 72.04 32.50 6.00 '100.00 3.32 231 22040 222 P.A.. Chel. 0... 33.52 3s1 52.06 37.24 92.73 *1.1S sa1o 93.70 92.59 90.64 36.42 232 24`14 2000 Cabe.fa Chpo 73.09 14.27 70.20 37.06 an26 72.03 3*.70 93.57 93.51 36A1 262 242497 1000 Cabe-r A rdy. 62.20 33.33U 0.51 V2.01 35.31 77.02 900.0 01.46 304 242002 435 Se.d. Ri. Arnt. 35.23 930. 61.50 79.43 05.02 73.55 77.30 03.16 100.00 6.40 23 241127 1S5 -onob.Hlo P.*. 94.55 90.23 57.11 371 14.10 73.42 75.00 30.41 100.00 SS.44 1W00.0 36.A 23 24352 22S El R.Ir. Anlon U.00 31.41 S1.0S 70.23 37.39 79.23 00.00 U 4.27 963.3 66.05 231 24417 1405 L. FeA. 2.4.go 86.48 90.05 S 3.04 U 3.91 27.54 79315 31.20 39.62 100.00 06.67 2r 244335 I Hu.do Lao Tabte 70.49 7350 S01.2 S130 100.00' 00.46 1W0.00 30.77 66.70 2n 24424 e 'Lee Dim L. Ch S73.76 3.32 015.4 72.70 00.1 76.117 '100.00 0940 100.00 66.72 260 244676 42 El C.avlktfo Poo 67.26 30.s4 4n.20 713.4 3S60 77.16 100.00 3.n1 61.20 37.71 1W0.00 36.73 261 240425 449 Ei Prr.wo La PNda 00.51 U.4.0 57.00 74.46 06.23 7S.f6 3S341 100.00 36.74 232 245960 5SS Ceb.cer L. Mil 07.10S9 .*6 1074 07.sS 64.37 7.1 02.10 66.76 292 240N2 S2 Vlont Fri. S14. tbool 655.7 22.42 75.53 71.13 02.71 73. 6U.20 09.73 100.00 7.75 06.73 20 240153 91 L. fEnere-da %Wboa 75.23 3.11 73.00 16.64 36.55 71.44 94.10 993.62 265 246220 67 pNo4re S.A. I.." 57.01 9.64 72.3Y 2 24 3S.22 72.27 100.00 30.77 150.00 06.65 3741 36.s 66.04 2 246721 511 C.Aor Geda. R .o.ndme 6206 90.00 01.04 305.5 096.1 60.32 72.50 75.00 *a3u .47 36.61 267 247201 560 340. Doeebgo 5..ba 52.70 32.33 7s.05 31.67 62.32 70.00 08.33 29S 252631 5340 C.b.era Arr*n 32.07 936.3 60.93 04.46 93.47 79.10 36.50 30194 36.0 C.b.c.., 3.. P40 30.31 35.63 31.61 95.35 61.230 76.04 24.40 06.40 86.07 66.63 23 252101 470 87.00 300 253223 162 Cab.y. Pta $3.37 30.54 56.65 76.14 70.62 30.4 14.30 93.25 100.00 37.15 301 2533o0 S7 El Ckio (Oo-. No.21 PFoo 32.23 39.1 62.47 77.13 37.63 79.10 78.60 69.40 100.00 66.62 100.00 37.131 02 2534SS 65 S.a Re- Coldn. 5.53 33.06 17.14 74.47 96.53 67.43 S3S30 30.67 67.22 252 252637 412 Cab.c.a POrg- 34.42 51.90 37.26 93.07 72.29 64.07 63.20 966.3 100.00 37.24 104 203s32 126 Ei P4r. (No.0. No.11 Pe* 93.43 32.72 53.92 74.31 74.63 77.16 96.30 63.29 L.. Treca Otawu 31.55 66.36 52.1 79.55 97.16 73.01 100.00 33.75 100.00 37.27 SO5 224047 54I 306 256212 2160 un. VW.1 Colon s672 61.31 75.37n 0.56 04.27 75.63 62.40 62.52 100.00 67.21 100.00 37.41 107 25641U 206 Sabw.apend (Sur No.1I P.A 30.56SS .17 36.73 77.31 3.631 7a.so 31.10 63.78 100.00 37.42 203 254653 44 Rio bhdo D-no 42.00 6.00 U3.45 87.26 74.22 73.32 65.20 90.07 61 ANNEX 4 Targeting RELATIVE 4 4 20 4 4 4 10 40 10 100 WEIOHTs HOUSNGONDICATORS EDUCATIONINDICATORS NUTRITION TOTAL % COMPOSITE RANKING CORREGOiIENTO DISTRICT WITHOUT WITHOUT WITH S POP 0 ¶ PrOFAGE 6-15 POPUL NDICE INDEX ClaMI ENROLL POTABLE SANrTARY DIRT 6-15 NOT SCHOOL SCHOOL BELOW NORMAL AGES NOUS ENROLL GRADES WATER SERVICE FLOOR IN SCHOOL FAILURE DROPOUT HEK3HT STO 15 POP.JL 1MENT 1-6
BS- Air.. Ch, 24 U412 S. 770 2.n4 76.91 74.a0 UU.2 10 67.43 300n 25701 233 Lo. C.M.ioo RI. de J..(. 00.24 *1.16 6S.41 74.63 00.46 70 0 .75 1W00. E7.6 10 207162 71 S.klu Ch.OW. 46.55 73.06 62.22 31.11 07.60 76.91 71.70 07.00 100 00 07.01 511 25704S 238 C o5... Ioqu.r6n 00.15 77.01 74.06 16.27 05.76 77.73 60.00 06.04 06.46 37.01 112 258024 47 0onol. Po.0o01b 57.43 72.37 73.54 73.69 *546 77.19 62.30 06.61 100.00 7.050 313 258127 10 Cdb..- 1o1.42 3.40 31.57 61." 66.05 77.07 92.60 0662 6.33 67.06S 14 206602 675 P5o oeuq . 6615.00 42.W 73.62 45.0 61.4 63 3. 100.00 66.60 62.14 17.61 315 25616 1 F= . 0.0lb ChoU. 6.43 6.56 1 .3a E7.S0 92.23 57.24 70.60 66.49 100.00 67.75 316 256342 520 Coch-. D-,4d 77.72 07.15 63.46 77.60 75.22 750.0 60.60 66.66 06.94 37.78 317 259S36 225 LO. O.. ArrbA. C.p;. 66.02 90.12 64.39 70.01 82.3 00.46 30.90 66.43 100.00 37.60 318 200676 110 E.cob.l Colon 46.67 01.42 75031 30.24 3.os 74.18 60.30 68.32 100.00 37.61 319 260231 S05 Mlil rIobl 3.v. 7 .04 25.03 31.41 17.03 62.5s8 0.40 65.70 100.00 100.00 17.61 320 260251 20 C.rro Pz. 3.g.b.l 63.56 62.21 01 .61 6s1.34 1.0 72.13 61.60 0.72 81.71 7.12 21 260724 473 V.I. RI'o L. TbI. 6E3.62 62.50 0 6.12 100 2.3 000 .0 00.00 37. 8 322 260733 20 Lb,,,6. Cob.n 50 .00 64.30 77.23 600 3.24 71.31 76.6 0732.3 100.00 362U 22 26134 4n7 A-1.. D. D. Io-z- -o S n 06.60 3.71 061U g07.37 02 14 76.14 62.0 7 3.6 66.38 32 24 26666 7646 Ro-v Dolog. 02.63 7.26 72.13 70.02 6277 76.70 73.50 66.0 65.71 66.17 225 260030 2123 OsoHolo A,w, 03.43 90.36 77.57 6E1.5 66.031 3040 62.o 106.00 619 336 271025 1621 Conp., Copk. 02.6 64.2 7 74.10 65.67 65.1 71.17 66.70 66.13 6616 061.22 n 27 271107 177 .t nb. Pr. 100 00 g66. 006 666 6614 7600 62.60 75.51 6.605 66.24 325 276764 7507 Hon,ro G....O 65.31 75.32 74.16 76.64 013 76.26 70.20 93.10 97.36 66.30 323 276663 102 Rklneo Hondo (SI, No.2) P-1, 70.73 95.73 67 55 64.7 376 76.31 3050 68.6 100.00 66.28 S30 270130 16 Cob-cr-dob- U 00.46 63 0 2 .46 02.03 72.30 7.60 6.03 68.47 6640 31 263550 4370 L. Godo. mbo. g0057 62.26 60.66 71.46 5 6 65 7 7.0 0 6.76 1060 30.44 32 23530 4 El P.,k.go.o Lu Tb... 6.26 g4.47 35.74 0.21 100.00 65.46 66.70 600n 106.00 6.47 32 2 26 RloHo.do L: TdAb4 0241 76.75 60.60 6.211 5.,70 73.23 100.00 660 106.0 S52 34 263657 32 LI- G n d. O.u 01.75 6.02 63.6 72. s 70.37 644 1060 60 31.00 23775 11 rquorzL.I.v,. rwd 66.66 06.71 60.61 06.41 00.60 76.31 02.70 77.02 66.22 u.6 33 26716 461 Bd. No.1. Cob.n 06.74 37.50 06.72 6.30 6.30 7n3 01.0 7u.31 10.00 6872 337 266037 7671 AI..j. ~~~~56.11736 7.05 31i.'8 625 76.00 62.0 6.76 66.311 .72 233: 206772 130 Li.. d. Plod,. M.o.. 36.001 5.405 4.97 77.32 62.42 74.32 05.00 69.92 100 00 .74 336 200336 224 Nor.b,. do Di.. 3.. I..b.1 57.74 53.00 72.07 50 n31 I0 35 46 02 30 06.15 100.00 31.76 340 26747 478 El Eopldo JSo C.Io. 72.06 33.0 77.32 7.21 322 77.73 73600 n.14 0.41 0. 341 367370 204 C.b-oor L. F.db 79.6 6.08 70113 82.30 97.03 71. 5 0 967. 30 106.00 603.10 342 336347 666 C-An.o Cpk. 66.16 60.11 74.21 05.37 6234 77. 165040 66.74 90.34 6313 543 266740 368 Lodond,,. Food 72.07 906.4 60.62 21 6. 76.0 100 00 0070 10606 6.15 344 2u0607 62 C.b....- S Fr-e.oeo 64.2 1 07.29 6.32 65.40 30.42 a0046 87.80 6. 70 90.67 63.21 345 29326 457 Go-dobp L. Chorr 61.02 93.15 66.40 *6.46 006 7.7 61.00 00.74U .25 626 346 10250 3241 V.n ln*o L. Tob. 35.62 61.64 70 .2 2.35 77.15 77 .0 130 0.32 10.0 6.: 347 20332 123 L.o A.dwo Podld 68.205 31.31 75.66 76. 7 t0U.6I0 66.0 00 0 100.0 6.33 341 102633 71 El T-br AbInbg 76.6 3212 66.22 31.77 U58 37.30 01.30 6. 16 6. 47 6. 34 340 302703 09 L: Cobr-d. 8.Vb.o 65.75 93.64 70.27 64.S3 U6.3 7.23 70.90 B6. 99.90 66.39 350 303143 350 L. P...,. G...6 6650 37.37 61.12 3. 64.49262.00 00. 90.39 100.06 6.44 51 303211 70 L.a La. D-vld 6045 67.35 65.62 U345 .n 75. 2 05.30 1.67 65.14 6.47 352 305020 1303 Lbno Abgo Cu 6 74.o3 00.00 713.4 62.95 36.20 73.50 04.70 60.56 10.06 6.47 313 305006 70 Lkdic. C.pk. 63.37 62J.3 73203 68.34 013 7320 37.0 666 602 06.46 354 305613 514 Codwi Colo. 637 96.64 648 95.95 4.7 7.1 650 U11 100.00 s.0 155 353136 2526 Cunund. P-.o.,.& 100 36.21 96.80 00.06 6.20 73.36 80.20 10 6617 6.900 356 310910 2777 L.. Guob.. Lo. So-ot. 87.47 33.05 6.61 75.10 6246 71.45 100.00 690.0 1W0.W0 66.52 357 311052 12 3,d1On R.n. -Ano 60.47 36.72 61.17 74.12 32 35.0 72.70 0.67 6510 36. 7 3U 311114 62 Rio Ab.4o FwAn 99.96 3.73 0.76 66.03 902777 77.7 94.00 7. 31 6675 a. 2 31226 1170 C.bo.. A.o* *7.U 73.61 75.96 30.72 3O51 75.32 00.20 66 13 97.70 36.0 350 313041 757 LI o d. Cn. P.O 66.36 90.36 57.66 o. 19 1000 646 100.0W .6 1W.00- 36 361 313000 1 G.W.y.bo S.n C..oo 72.32 9126 75.63 70.00 10. 66J1 65.70 00.79 10.0 36.71 362 313105 4 C.br... ooO 94.50 94.66 902.4 32792 *l03 7.64 o8.00 962.2 03 6.U01 6971 253 31761 1656 El C.Io Ma 00.97 65U 75.35 70 72 37258 74.66 4.90 7.73 100.00 69.72 364 315177 1 Nu.o- Enp.do, A-.on 0 1.04 1 30.64 3 *9.2 73.01 S5 60.40 6 .16 00.57 315400 263 S. n ,oboViojo D1vId 646A 410s 72 I. 7 76.40 6.02 96.60 3. 86 315710 259 El G..hokoo Lo.. 3.o. 87.35 900. 6552 7.27 8657 II 46 U440 96.74 106.06 6 .86 367 315764 75 Co.b Bn. 01n.3 77.00 2.30 91.10 4 6544 6w00 6.10 96.24 90004 33 216064 270 . N. Cho-,,. 67A47 64.11 668.4 31.76 76..5 77.19 5370 66.I0*as2 05 36 31060 265 Sn r.dr. d.1 E.plno S_Ibgo 64.56 3. 75.23 62.12S 031 62.35 76.70 96.05 6.3.s 3037 316543 1U0 El CdhoI Agudtd.. 03.10 64.72 70.35 67.90 62.0 75J.2 76.60 67.03 16.W00 90.15 371 317011 463 Cdrl.b6b Col. 04.73 7.6 95 E 94.60 67 24 73.0 32.50 37.00 10.00 90.16 372 310364 1373 ChbIqo4 D.vld 03.70 03.61 77.14 04.16 640U 7. 23 33.20 67.4 6.69 90.25 273 210307 423 to.g . 60.0 91.6 66.24 6255 U1.1 76.42 6. 6.22 10W.00 9.20 274 3n3 13 C:bocor. s::: h. bl 66.67 3444 64.36 36 64.57 100.0 73.60 0665 100. 906.45 275 31U65 42 C.b.y. Ch- 3673 03.45 75.70 6413 01.75 76.22 37.50 99.11 99375 00.46 376 316673 103 Co-dir- Boq 6n 76.31 796. 37.31 66 70 100.00 .62U 75.00 31 4. 3047 377 216757 26 S.,4. Mrl. u..gdb 72.02 61.66 30.72 37.26 61.25 62.57 91.70 67.0 3 670 66.52 270 32206 30 L.. U-.. S.n C.Ia 36.20 95.24 02.87 6416 37 54 62.16 77.40 0613 6. 91 66.53 27 30275 170 Sn Ju n Colo., 6.26 65 54 35.8 02.43 37.9U 76.60 6.60 62 70 00 .00 10 55 30 322331 2050 El Cl4nu A.Od., U4.53 U .73 70.66 60.04 00.12 60.46 67.70 676 7 100.00 6.01 342 32273 402 fter.gW l -ADd 64.73 95.61 37.00 96.47 91.6 73 50 91.10 6. 76 60.40 30.2 234 24677 2144 5.m. A 1W0.00D 909.7 30.67 05 34 6665 74.36 e1.00 6 .26 65 52 30.63 382 320002 2111 Co-ld P o.m-. 07.67 66.81 730 62.1 620 61 1.00 67.70 100.00 66.64 164 237414 422
El Rtb,a6. .. MI 74 43 72.05 360 77.1 7.3 31.10 63.37 100.06 30.4 385 227657 243 Sa.'.fll1 Ch 0.73 6.27 7.2 0.27 76.73 770 6.12 10.0 so.6 36 3742 15 Cdbe.. Po.lob. b 74.85 83.23 31.62 6.961 0.42 76.4 90010 67.5 100.00 390.69725 47 232 9U3 01 62 ANNEX 4 Targeting
RELATIVE A 4 20 4 4 4 10 40 10 100 i ______~~~~WEIGHTSI HOUSING INDICATORS EDUCATION IDICATORIS IUTRJTION TOTAL 1 coMrPOSTE RANK8o CORREGIMENTO DISTRICT WITHOUT WITHOUT miTH % POP V Y % POP AGE 6.15 | OPUL INDIGE INDEX CL14 ENROLL POTABLE SA4TARY DIRT 6-15 NOT SCHOOL SCHOOL BELOW NORMAL AGES NOUIS ENROLL GRADES WATER *ERVICE FLOOR IN SCHOOL FALURE DROPUT HEIGHT | TO 15 POPUL bENT 1.6
U 0075 SU8 32200S $65 C.Ak Ch.po es55 n8.n *1.5° 75.52 SS 01 ?1.9n17 08.o*a n * VYu A.46.n 05.54 1.40 03.01 0206 60.50 4os72 n2.30 65.E7 3740 6002 386 330020 1412 Gob.. Dono. 47.02 556 n614 U4.26 77.74 7n.64 I.20 0.4T 100o00 8 5s 500 o30774 154 Sn Pr1,b N-bo D-Id Q2.40 67.59 75.65 7S.83 69.81 76.S1S0.00 69.16 9n24 506 So1 130626 152 4164 B 3oSur CoF16 00.75 67.46 66.63 67.48 S7.00 761.7 6Z2.0 63.23 10060 60S1 362 33s00 a.do* Ibo. L. t.os 66.00 96.07 66.41 96.36 *3.47 7623 290o 64.27 9nn8 90.91 22 342`141 70560 35 C.olq.. Pnooob.I 77.64 07.350 1.16 62.45 87.63 73a1 77.80 n9.0 100.00 6o0e 364 342184 3n0 U3454 1270 El Robl. AobudL. 66.44a0.04 65.44 86.6 86.05 7e.96nU2.30 U4.6 1o0.oo 0067 443 PlW. L-on L. Chon 63.a 6.66o 76.14 51.64 60.21 66.65 *1.20 H." 0046 61.00 36 343867 S1.60 160.00 8 103 3507 14Y716 la .o. L.. .bl.. 96055 6.55 71.14 21.7S6 0.27 756.2 100.00 27S P.r .k S0u.10 61.66U3.30 01 .66 64.61 O3.62 75U.9 65.00W 8.35 11.26 61.08 1 34.4201 El 56..,. (No.1. No.23 P..& 64.20 02.02 70.45 64.70 63.03 76.64 100.60 960.6 100.00 61.06 38 534133 172 34463 60 P.,Udo Focd 66.70 68.42 a4804 10.014.64 7a.66 100.60 66.54 100.00 01.11 400 3s66 C.b..o.1 Chkol 60.37 66.20 65.16 9811 62.3 77.32 7LS0 65.47 160.00 61.13 401 34832 Volcb B.gb. 60.64 01.60 03.62 san 92.56 0.03 62.0so 64.07 02.97 U1.4 402 1s5215 16S 161 Cild-. m0oqu ° 4.70 7 .72 61.73 70.34 62.47 76.64 60.60 06.11 e 9.46 U 117 403 SS1146 404 254068 3732 Son Fhnol... Po°-r 100.00 W 6o5.1 65.67 o .38 64.811 74.73 60.50 270 66.2 1 01.16 405 S S4101 53 Lo. Ang.l. L.. 5.40 60.54 n 6.33 S2.50 63.60 7n.76 70.22 76.60 66.64 100.0 61.16 3s4001 600 L RAy. do S2. Mid. S-wlgo 06.66 53.03 76.31 S0.62 S7.54 70.10 65.60 97.24 06.44 61.21 400 417 El Coco. P r.n m* 61.66 65.S1 77.4 60.01 S5.31 60.18 61.20 67.16 1100.0W1.27 407 355218 Br.o Colo. L. ChIS. 06.4 88.26 5.11 86.06 64.07 n 7.52 62.60 66.02 68.5s1 S.4 4n0 3483.3 1121 400 681171 40 Sugob. u.ob. 7.52 63.51 6.73n .6 62.34 67.30 76.40 98.33 *9.24 U1.36 L.. Cu.. Lo. Sw.8s 67.50 63.06 74.26 76.70 66.06S5.2 77.46 nn .38 100.00 61.40 410 38810 136 yE F.do Gon.wid.z *bo 7.44 7.66 57.43 6.63 *2L14 S0.46 63.o ns.92 *9.77 61.42 411 38571 264 El Hlgo *in Cut.. 64.6U 545 76.63 116.6 60.27 76.10 7.60 8S657 100.00 oIAS 412 156867 360123 256 Chupnp. S.M. Mh oo60.00 67.04 75.25 U4.76 65.16 77.72nN.30 60.48 100.00 1.*50 413 414 15623 167 El F.U.rgo-o Jo.. No.1 11.4 U 0.71 6.44 7S.3 6s.94 66.56 61.8 62S2L0 66s4 100.00 1.54 i 48883 1602 Cob .. r. A.846. 00.71 94.66 8S115 1.06 62.01 78.262 3L.0 64.20 100.00 85157 415 341063 3 P.A. n.- L.. T.5.. 66.66 65.43 63.04 96.60 66.44 66.67 607 00.76 100.00 01.61 416 523 Cop.d. - NHai 90.67 91.46 U4.19 65.46 63.26 70.6 60o 67.27 100.00 61.65 417 561543 C.b-.,.. S.M6. Mod. 66.57 5141.63 61.70 63.65 87.63 60.05 60.00 60.0 100.60 61.601 418 362316 667 3ss02 1262 El VCII. Ao4Sn 02.62 08.04 88.S8 6S.1 60.6 7a.14 78.10 5.84 100.00 61.70 416 34001 4n0 Son Fill Son Fib. 00.13 67.80 SS647 62.26 65.70 72.63 61.60 96.60 66.01 1.72 420 37240 3230 S.bon6. Colon 02.76 66.11 05.38 n7.64 00.17 76.63 n0.6n 862 100.00 61.76 421 L. E.po..okn P.nh 100.00 66.60 6.6" 95.46 60.60 70.62 87.60 67.30U 6J 32 01.60 422 372347 507 375152 26S El Chondlo ron. 100.0W 06.63 66.n1 9S.60 65.31 76.23 *1.26n 6.10 06.02 01.61 423 U1.67 424 376100 3646 Coboc... Fononoml 65.70 65.66 84.42 86.43 64.07 78.01 00.o 05.60 100.00 oe.17 160.00 61.61 425 376233 133 U. EnnU. * n Codo. 60.76 6S.S1 7a4.62 6s6s 66.54 U4.54 66.00 s170SS 126 STij.ooBSoqu rbn 66.49 66.07 62.57 6.06 6A7. 71.86 66.00 69.02 66.63 51.63 4n8 170 L. Colord. Lo. S.os 60.06 U4.4 76.02 60.78 67.00 72.40 KOO 9.37 100.00 91.04 427 376526 42, 376620 2m1 f.*.Qw N.oquron 60.34 63.223 6.90 0.64 60.21 66.00 61.50 66.71 67.34 61.64 S.t. k.b.l Sint. 0b.1 63.66 6.73 100.00 641.42 67.04 6#.85 1100.60 "98.5 160.60 02.10 426 376879 5o 1e846 214 Son Jol Sn CI.. 90.65 66.4 7a8.5 6.15 76.22 S1.15 64.10 60.60 8W.17 62.11 430 Cob.c.ro Dolog so.4 956n.06 66.07 62.21 93203 76.23n6 66. 1o 96.37 92.11 4n1 311532 140 301632 130 Cod.. Tonodl 03.U4 80.64 80.40 71.54 60.65 77.32 02.70 66.36 100.00 62.12 432 92.14 433 38104 302 Nuov- Pro-idnl. Colo.n 80.1 96.65 82.42 64.25 85.46 70.98 66.760 6.00 100.00 Chuploy Mr. - 64.87 06.74 05.20 64.20 60.76 72.00 5 6.00 69.61 100.00 62.15 434 382049 5S 2693 Po.blo Nuvo 100.00 099.3 6 6 g4.58 69.1 71.45 2.60 66.612 0.76 92.16 435 U4 142 436 384312 170 M.1. Ctk. Pnoobolo 0.g2 13.62 66.57 60.65 61.11 76.01 "AG40 68. 100.00 or22 El E.pildi G-.,& 1100.00) 64.40 80.71 51.01 60.61 609,.6' 64.80 6.43 '100.00 62.31 431 38444 142 438 1SUW 515 Soo RU. L. Cho-.,. 0.61U 4.22 76.61 61.42 62.76 70.23 67. 70 9.17 98.66 67L26 385160 211 ULno Lorgo Lo. S-*.. 66.46 66.24 77.37 65.61 76.53 75027 100.00 60.83 100.00 621SS 43 1741 Po-d Agudko. U4.22 U0.66 62.49 18.41 66.61 76.91 68.60 66.43 100.00 62.36 44 3841029 U4 . G-nd. Ponol.o 92.6 52.67 63.37 6514 65.5 7au6L 6.30 66.641 1W0.00 6.34 441 37022 4.42 3 7471 456 Pu.,to C. .o L. Cho..r 98.41 05.73 06.60 6026 35.76 72.13 68.60 87.0 96.31 18241 43 387620 146 Qu rn lo0 A1. 96.12 86.00 51.15 66.13 61.69 76.73 62.00 96.06 98.43 62.46 260025 2400 Jun DomoN. Arn..h 03.65 66.48 65.62 97.00 60.50 76.64 65.60o 96.ss 66l *251 4aa Aroo.o1no 393 Son Mi.h. Pono 02.23 50.02 63.77 91.52 64.21 77.05o7.50 66.26 86.51 62.8 "s S10416 6o 361234 gig El Coo. L. Chorr- g2.64 57.50 68.77 66.65 63.47 76.50 00.90 64.22 66.74 62.06 447 6127 a Ot.oq. Orlo. Tbog. 15.73 66.61 1W0.00 66.64 66.61 77.32 100.00 6.110 100.00WW61 "s 3S1351 73 1.$ Rio. 0ol.go 63.20 *5.24 62.16 80.74 65.21 76.76 67.50 6.1S 9n.91 62.70 C.b.o.,o Son Lobob 90.61i 66.65 00.87 77.61 81.60 18.1 77.60 68111 66.26 82.77 446 561578 327 450 S21760 162 L. Enpigodilo Lo. S_.4.o 08.01 65.79 77.39 63.67 60.40 76.01 65.70 60.17 160.00 62.76 023. 451 361636 66 P.4. P.1. 00.66 66.62 63.62 64.36 95.70 72.13 61.60 60.37 100.00 452 295042 3203 Cob.c.. Aguododn 66.20 6.023 64.56 06.6 926.4 7.0.6 62.60 90.16 100.00 92.60 62.66 453 3S64so 1546 P-o F116dn Cold. U4.6 06.07 65.33 05.34 66.05 76.42 61.40 61.54 100.00 11 P-..4 Ch. Chm- 07.30 03.24 60.15 74.63 100.00 05.60 23,10 696.2 100.00 02. 454 3S601 * 6688" 264 Pon Mo 100.00 0.26 77.06 100 57214 60.40 64.10 66.76 100 00 645 316605 1Y El Lo-no Chn. 61.57 65.83 601.4 s5.12 160.00 6046 62.60 9.95 10.0 s.0 456 166638 33 P.O. d l 84.05 0 .27 U428 6713 5 .70 72.27 a3.30 60.04 10000 63.0 457 458 387433 495 And6. Pr%ooA 93.1 7.61 61.43 03.6 .11 74.16 67.0 04.32 1.66 63.11 63 ANNEX-f Targeting
RELATIVE 4 4 20 4 4 4 10 40 10 100
HOUSOO NDICATORS EDUCATIONINDICATORS NuTOmIToN TOTAL CO74tOSITE RAMKIWG CORREGAIENTO DISTRICT 1ITHOUT WTOUT WY"4 YPOP 10 11, POP AGE 0-15 POPUL IN3OE INDEX CLUM ENROLL POTABLE SAOTARY DIRT 6-IS HOT SCHOOL SCHOOL BELOW NORMAL AGES NOUS ENROLL GRADES WATER SERVICE FLOOt 34SCHOOL FAILURE DROPOUT NiGHT 6 TO 1s POPUJL MENT 14
to sAbi D.W9. IGA2 "17 80.70 asl 93.03 65.30 $6670 X.40 66.77 03.12 459 26750 72 Ceevwe P OLII 25 0 l 95 ,U1 0. 2.90 0e91.42 100.00 03.15 460 303001 06 Los O*v.. Los S.R.. 96.94 U4.47 77.38 97.77 91.04 72.01 100.00 96.40 100.00 31 461 30113 112 Potr.ro. Delege 02.36 64.44 67.40 7s.55 02.14 6046 67.60 60.32 700 63.23 462 300245 132 VYM. AlMe Anqr 97.24 S6.D 05.67 67.17 02.50 76.76 6040 61.46 66.10 63.27 463 400311 m006 VIctorIo Lorenzo Snanmnpto 66.30 66.77 60.42 07.12 31.25 7n.32 64.60 6046 66.64 62.31 464 403U62 1s1 vIE. Roslo C-fr 17.02 65.63 60.60 "606 61.10 75.00 "0.3 68.2s aal.g3 03.15 465 404136 6rs RIo 0°.d. Pamm 956,76 966.64 aL36 67.60 s.76 06.00 64.50 66.24 100.00 62.40 466 404603 465 Cbe-re Mea- 961.0 63.70 87.02 63.05 6S6T 60.16 66.60 36.25 100.00 62.S4 467 400413 61s BaSlco Ch- 0675 37.38 30.32 L30 656S1 77.16 6.so 97.52 66.62 62.57 40s 406000 Soo Morlagud Chohri 06.60 BLOC *1.61 65.43 62.62 76.01 66.20 64.40 160.00 96.63 466 407607 1t" Chtploo Chap. 100.00 60.38 0.13 6.SO 60.34 6o04 67.70 60.60 6.S61 63.76 470 407653 46 Cab.a n C.p. 6S.16 6066 66.66 65.72 6.02 04.64 65.70 67.67 66.60 62.SO 471 400070 1138 El Cwrt L.. Tble 64.26 60.74 64.63 05.65 73.56 62.65 100.00 62.46 100.00 64.04 472 401140 61 B.e. vim. Pa-- 100.00 6s." 66.66 94.75 64.07 76.64 03.50 50.22 66.57 04.04 473 412310 3170 C.eha.r Sa Cml.. 64.66 94.61 66S5 61.01 05.611 30.46 06.60 06.06 06.60 S4.07 474 412622 022 C.ho-r Pbe. 01.64 68.112 86.10 37.22 JZiU 77.73 64690 6709 100.00 4.21 470 4135361 6 Sno. Am. Lo. S.ates 06.25 64.56 6W60 66.06 00.60 77.16 100.00 66.45 100.00 964.38 476 412726 ¶6 F.anW L. Choer. 0.0S4 67.32 66.00 60.02 00.00 75.06 60.60 6601 6.U0 04.42 477 412037 200 L. Paln La Teb.. 66.27 U6.00 6.63 67.76 6S.72 77.32 0000 6041 10000 64.3S 475 414206 236 Sadba -da Los Sa.a. 67.52 6.61 85.44 6l1 60.50 74.18 10 615 100.00 6U4.4 476 414401 I16 VIR. CanC, Cn. 60.31 66.62 66.36 66n.611 6.72 66.72 60.00 66.37 66.76 64.63 4n6 414517 11s El CooSd Le. TeN. 65.211 6644 85.36 62.67 01.54 717.16 65.60 38.36 100.00 64.74 4611 414643 126 C.b.. rp-ood 66.43 67.34 64.30 601 66.07 67.3 100.00 06.52 100.00 64.74 462 414761 t4t La. L.. Cha 69.00 67.20 66.71 6242 64.67 76.64 650 66.64 66.37 64.63 463 414967 176 Crb-c P.dn5 63.40 67.17 60.20 63.65 2.692 73.77 60.60 60.1 100.00 64.64 4u 415202 325 Cebo-or-e 66.1s 640. 7.70 65.60 02.04 71.60 00.60 66.44 100.00 64.16 40S 410114 622 L.. Tdbi. Ab4. Las Tbl.. 9.141 66.14 6610 66.30 0.00 77.46 60.60 66.61 100.00 64.62 4U 416160 46 Los An-a.aoo DoIg. 3.61 6L604 5.26 6S.3 60.50 76.50 66.20 66.26 66.4 64.601 457 416402 242 C.b..a. N&A 64 9n.4668 62.1 I0557 92.47 73.63 04.60 00.27 100.00 6a0.3 460 417SS4 ¶16n lbo.g. *a.. 64.26 66.16 60.21 S6.6 672 7.77 160.00 08.85 64.17 05.s 406 417625 dl Crabern Lo" S_4O. 67.23 06.01 64.45 67.38 6120 77.00 65.60 65.76 100.60 65.3 460 416266 1601 leroc kS MBg- 00.66 0.5s5 96.62 607 05A 60.11 65.60 0Z3. 0.53 326 401 422174 25 F'rsoo PFod 6 6.44 6a23.63 6S6 10.00 7046 100.00 66.76 100.00 65032 4*2 422210 41 Caoc.r. La. Tbb.. 66.25 6.46 07.03 642 00.26 76.28 63.00 65.81 106.00 85.50 463 424260 2067 El Mas-b La Tabl. 160.60 07.13 0016 SL6 61.10 66." 100.00 66.63 100.00 6S.66 464 424330 40 Sn Folpa PertA 100.00 66.63 100.00 6547 61.36 77.46 64.30 64.60U 667 65.71 400 426126 376 C.b...r. c 66.47 666s 90.70 66.S 6s1O 76.61 665SO 67.67 100.00 60.0 4" 426016 0s1 La Araa CI,eS 66.53 66.40 64.36 6S53 62.26 00.11 68.5 00.73 100.0 95.01 467 420032 614 Sa J..4 La. Tble 63.22 17.63 6.?71 61.25 100.00 74.56 100.00 66.70 100.00 60.0 466 428876 46 Tr- Oobad. Los Sa4V. 0.211 05.ss 61.67 66.46 f6.70 7051 6O4 61.2S 100.00 96.10 4* 426614 124 La La Lav TabLes 640 66.60 67.00 60.63 100.50 67.21 100.00 68.77 100.60 66.10 so0 426,5S 31 La Tm La- Tabl. 66.42 0642 9143 61.36 60.47 76.14 160.00 90.26 100.00 96.24 501 426603 57 Las PayA. La Table. 06.800.6 66.00 012 100o00 72.60 100.00w6034 60.26 100.00 502 426S6 U4 Cabacare Ch.Wo. 97.75 06.02 03.23 634 76.4 634 100.00 60.70 100.00 06.38 503 430002 6 Caabo.-. Taboga 03.60 62.3 00.20 03.22 06.61 60.46 66.0 6.40 699.62 054 504 430115 113 G-erera Antb Guer.4 100.00 66.13 60.61 8 6.7 00.05 64.70 100.60 60.85 1oo.00 60.0 so 430147 32 Sataadoro Lav Tab.. 100.00 66.13 96.70 64.30 62.40 6230 160.00 66.62 100.00 6072 506 430162 1s Canb . Chrn-. 07.2 66.13 96600 64.16 61.10 06.7 07.50 66.77 60.64 60.0 507 431164 1022 S-.Vo Donvngo Lae Tb.. 6.76 66.6 ".35U663 06.6 6.6 76.37 100.00 1 0 67. 2 5 431302 III La E-. Cur 6.60 160.50 f6f01 60.5s 100.00 71.17 100.00 60 10.0 67. s0 43134 Otoqo.. oold.on. T*g. 160.50 63.33 160.00 661.50 00.00 30.46 68.63 66.62 160.60 S6IO s1o 43134 0
Moles Honn povety Inrdatorn a,. Pereos Ofh." dh. wthoi pol.bi- wotl. r hot sedary ws.d. sod wIh r d ton Eduaor, povrdy inroaon erperrae. of shodosod. eklte., (0-15) rod fterang schod. end mrea.of Sudots In basjo odm, WI1.it Wd .e. rnetions andoftos.w ho dropDn of chool. *nrolonindotcor oUh. Perc.rayofd prtotary *choo poDS agae lo 9 belw normal hodgit. LowerL InrdocUnioN. wort s ho-nng. medio.nd W ao.Ooncortitlon with gwr poptIan dre. and Nhtihrpsredg, of ndgseo toptlon. The oooVot povdy ind.. lsth. * afg. ofohom me,reto. andnr tion lrdetoo. WgPted by the totslcdooolegeo poptiotn (s.. Ito 1S) ad by n. promdage ofindgwse p 1piAtin by .oogrnaNro Th. proeId ol tegt tMhpooro IC0 -orr-gnkn.wos (37 pD . of al th. coreginedo Ib.Oh. vofty). woh le d. 41 pwrord of the e td In.qede I to 6.
S-r,.a PoptUton ad HoFbug Cn. 100. Para. 1-ls d. SbaO.soin d. N-dae d.deoBSeo. Lepab dle Pobars. MIPPE. 1663. Setoatitlo.. 1¶03. Lrery of EdEaon. Pam. Schod Chiken Halgth Cn. 1694. &Wls, of ErheUos and Hean.h Pere. 64 ANNEX 5 Multigrade Teacher Training
TEACHIER TRAIMNG IN MULTIGRADE METHODOLOGY
Background
1. The first training seminar on Multigradewas planned and implementedin 1986 and was delivered for technical staff of the Provincial Supervision Bureau. This Bureau was assigned, and still has, responsibilityfor disseminating guidance to teachers on techniques and strategies for multi-class teaching. The core document entitled Work techniquesfor multi-class teachers was presented and discussed during this seminar and now serves as the methodologicalguideline for teachers.
2. Based on this seminar, the Ministryof Education has continuedto implementteacher seminars for the purpose of increasingthe number of trained teachers, although from 1987 to 1989 the country's political and economic situation limited the planning of new training seminars. Seminars increased from 1990 to 1995 and workshops were held to prepare activity and content charts for mathematics, science, Spanishand social studies in compensationfor the lack of free textbooks.
3. To date, statistics show that, of the about 3,800 active teachers who teach various grades at the same time, only 625 of them, along with 425 teacher interns, have been trained in the relevant work techniques. Moreover, due to the lack of an ongoing systemto assess and monitor trained staff, it has not been possible to assess the actual impact of training, that is, its effectiveness in terms of the application of techniques to improve educational achievement. Therefore, methodologies will be offered through training to facilitate the development of teachers' creativity in organizing leaming settings, make students participate in skills building,and ensure the essential elements of advancement and competitiveness.
4. In addition, the provision of classroom libraries and activity charts, and the use of innovative methodologies,will require seminarsand workshops to achieve effective,comprehensive improvement of educationalquality, in terns of the interests and needs of students and the community.
5. Therefore, the MNNEDUC/WorldBank Basic Education Project, through its efforts to support education in Panama, proposes to handle the situation from the standpoint of teacher training and the provision of educationalmaterials to all schools with multi-classteachers throughout the country, by means of a training and skills improvement plan and classroom libraries which are considered basic resources to enhancethe quality of education.
6. It is essential to increasethe number of multi-classteachers skilledin proper procedures in order to ensure the best possible use of time and resources, so that the objectives and core subjects of the elementaryschool curriculumare covered satisfactorily. In the future, this could also enable graduates to continue their studies at the next educational level with the required entrance requirements, contribute towards improvingtheir environmentand participatemore efficientlyin communitylife.
7. Training and other skillsenhancement efforts will be guided by a model that encompassesthe use of participatory, dynamic teaching techniques leading to autonomous student achievement and that includes parents and other communityinstitutions in the learningprocess. 65 ANNEX 5 Multigrade Teacher Training
8. Due to the teacher's importance as a basic means of raising the quality of education, skills enhancementplays a leading role by helping to integrate efforts carried out in the classroom and make them consistent.
Training of Teachers and Supervisors
General Objective
9. To increase the number of students in multi-classschools who achieve passing grades and remainin school, through the proper of use appropriatemethodologies and learningmaterials.
Specific Objectives
10. To improve the training of teachers and supervisors who will act as facilitators of the teaching-learningprocess, in the search for, and implementationof, altematives leading to the achievementof more effective,efficient education in rural, indigenousand disadvantagedurban areas.
11. To set up teams of facilitators who will disseminate the various phases of training, monitoringand assessmentof active teachers and student teachers by strengtheningthe existing organizationfor this purpose.
Description
12. The training offered will include efforts to counteract the limitationsor lack of training of persons working in multi-class schools. It will also cover means to give special attention to childrenwho are behind in their studies and to the use of learningmaterials and school libraries. It is proposed that a set of technical and teaching activities be prepared to contribute to the training of creative teachers with knowledge and skills in handling several classes at the same time; in the optimum use of work charts and classroom libraries;in effectivedistribution of availabletime; in better use of school and non-school space; in the use of strategies that include community members in educationaland curricular efforts; and in the use of active techniques and the developmentof varied activitiesthat help students to learn independently.
13. It is also proposed that the teaching function of provincial and national supervisors be consolidated to ensure training as well as guidance and monitoring of daily practices, in order to institutionalizethe proposed actions. A group of national supervisorsand 148 provincialsupervisors will conform the technicalgroup in charge of trainingand monitoringresponsibilities.
14. In the qualitativeimprovement program for schools with teachers of multi-grade,various types of efforts to enhance teachers' skills are proposed, includingon-the-job training; the provision of books, documents and guides; the publishing of monthly information bulletins; demonstrations of learning materials prepared using simple resources, etc. A national congress is planned for year m and an internationalone in year IV so that teachers and supervisorscan present the results of the applicationof 66 ANNEX 5 Multigrade Teacher Training their new skills and share their experiences. It is hoped that this will motivate research and the applicationof techniquesleading to qualitativeimprovement of educationin rural areas.
15. Two courses will be given in two phases: an intensivecourse during the vacation period, with 30 classroom hours and 15 hours outside the classroom, plus a feedback session on the sixth day; and an intensivecourse comprised of seven Saturday sessionsduring the schoolyear, six classroomhours each session,which will be supplementedby activitiesin daily practice. These courses will be mandatory for supervisors and active teachers, that is, the total number of educators will be doubly covered. An optional course will also be given to cover once again the total number of educators that constitute the potential demand. The multi-classteaching course will also be given to future teachers before they graduate from teacher training school. The mandatory courses will be :Multi-class, Specialized teaching and a third course, optional, deterrminedaccording to specific needs. Efforts will also be developedto strengthen group working techniques,specifically the preparation and implementationof activity charts, resources and basic teaching materials (experience charts, felt boards, numbers box, flashcards, pocket charts, logic blocks, etc.).
16. A specific workshop will be offered to 80 teachers on the preparation of activity charts to help childrenconstruct their own individualand/or group learningprocess and to collect a set of charts that can later be printed and distributedto all multi-classteachers. Participantswill be selected by provinces among multi-classteachers who have demonstrated relevant abilitiesand skills.
17. A library course will also be given to multi-classteachers and to junior high school teachers. To supplementthis trainingcourse, classroom research and reading encouragementwill also be planned.
18. All courses will be graded.
19. In addition to the above-mentionedcourses, the Multi-class Cotursewill be added for future teachers about to graduate from teacher training school who, despite student teaching in multi-class schools, require specificmethodological and theoretical elements which are not includedin the teacher training curriculum. This course will only be given on an intensivebasis.
Training of provincialand national supervisors
20. Before taking all the courses for teachers, supervisorystaff shouldparticipate in a mandatory five- day course consisting of 30 classroom hours and 15 non-classroomhours, plus a feedback session, on TeacherCounseling.
21. This course will allow future teacher facilitators and supervisors to be selected, in close coordinationwith their respectivefunctions.
Training of provincialfacilitators
22. In order to offer workshop seminars for teachers, provincial supervisors and later the best qualifiedschool principalswill be selected to act as facilitators,based on the teacher counselingcourse and meeting specificrequirements. 67 ANNEXS MultigradeTeacher Training
23. Subsequent training offered to them will cover the content of the syllabus prepared for each course, and knowledge of the methodology to be used, as contained in the facilitator's manuals. Moreover, for use after their training, they will receive a supplementaryanthology and a glossary to help them better understandthe contents.
24. National supervisors will administer the courses for provincial supervisors. This training of provincialfacilitators, related to the courses, with an intensivestage of six sessions and a longer period of seven Saturday sessions, will take place at provincialheadquarters, covering the establishednumber of sessions plus seven planningand assessmentsessions lasting four hours each, prior to each Saturday session.
Training of the Central Technical Group [GTC] (National Supervisors)
25. For each of the courses provided to provincial supervisors, members of the GTC will receive training by the persons who designed the respective course. This training will take place during working hours at the central offices, and should be supplementedby conferences, workshops or other events related to the contents and objectivesof these courses.
Course Contents
26. The contents of each workshop seminar will be organized in two large blocks, according to the type of teaching: theory and methodology, for the intensive phase; and teacher strategy in the classroom setting, for the seven Saturday sessions. Those related to Teacher Counseling will be organizedin five chapters because they correspond to only one phase.
27. The contents will be consistent with a constructiveteaching concept. They will cover techniques and methodological procedures aimed at multi-class work, teaching groups directly and indirectly, creativity,research strategies, use of the libraryas a basic supplementto the teaching-learningprocess within the child's social environment,and mechanismsfor process and product assessments. They will also include guidelinesfor participatingin the preparation of a monthlyteachers' bulletin for multi-class teachers.
28. During the Saturday sessions, spread out over the school year to monitor teachers in their daily work, the formation of working groups will be strengthened, taking into account the appropriate distribution of contents, suitabilityof curricula, and learning assessments. During this phase, note should be taken of teachers' experience in implementingwhat they learn from these courses in the classroom setting, and various new and highly practical contents should be included. Short-term remedial courses for slower students will be stressed, based on the use made of the results of ongoing assessmentsof learningand teacher performance.
29. The Saturday sessions, in which the planning, development and assessmentof class work will be monitored,will implythe cumulativeacquisition and applicationof skills. 68 ANNEX5 MultigradeTeacher Training
30. The provisionof classroom librariesis a valuable support in supplementinglearning activities, and therefore proper training will include the administrationand management of such assets, so that the bibliographicmaterials suppliedcan be put to optimum use.
Course Assessment and Accreditation
31. During each training stage, strict assessment criteria must be met which will affect course accreditation. Product and process assessments will be included, along with assessments of the learning of both contents and methodology, and of attitudes. For course accreditation, together with the results of the assessment,attendance will be considered (100% for the intensivecourse, and six of the seven Saturday sessions, provided that the absence does not occur during the first or last work session). Course accreditationwill be essentialrequirement for members of the technicalgroup and for provincialfacilitators, so that they in tum can provide training.
Printed Support Materials
32. Each course will have printed matter prepared ex profeso: documents for teachers (anthologies, Vwth guidelines for their use), manuals for facilitators (course description, methodologies for conducting each session and guidelinesfor their development),and assessmenttools (both for courses and participants'learning).
33. There will also be similardocuments for the intensive phase and tools for the development and monitoringof Saturday sessionsduring the longer phase. Besides the documents prepared ex profeso, other texts that are consideredpertinent for the GTC may also be included.
34. The training programs and materials that are prepared will be submittedfor consideration by the relevant sector and by an expert in the subject who may be a local or internationalconsultant, and who will issue an opinion on the matter.
35. Courses that receive favorable opinions will be validated with teachers working in multi-class groups. Based on the results of opinionsand validations,relevant changes or adjustmentswill be made before they are designed and published.
36. Moreover, based on the products obtainedfrom the workshop offered to 80 teachers, 120 activity charts will be included for grades m1 to VI, dealing with the four core subjects, i.e., Spanish, mathematics, science and social studies. This package will be distributed during the Project's second year of operation.
37. During the third year, a second set of activitycharts, similarto the previous ones, will be provided to students; these will be the result of multi-classteachers' efforts and creativity.
38. After the start-up of the Saturday sessions during the longer phase, an informativebulletin will also be issued. It will serve as a forum for teachers' opinionsand to disseminateactivities prepared by them. The best of these will be selected and publishedmonthly in the bulletin. 69 ANNEX5 MultigradeTeacher Training
Operating Model
TechnicalGroup
39. A central technical group, consisting of four full-time members, will be formed, preferablywith staff from the elementaryschool and teacher skills enhancementfields. This group will be responsible for planning training activities,guidance and monitoring;for designingcourses and preparing required support material; for training provincial technical groups; and for monitoring and assessing activities carried out by provinces. National supervisors, who will be responsible for providing training to provincialfacilitators, will join this group.
40 A Provincial TechnicalCoordinator will be designated for each province. This Coordinator will be responsiblefor organizingcourses for provincialfacilitators and multi-classteachers, for overseeing courses for teachers and supervisors, and for assessing the performance of provincial facilitators and the development of courses.
41. There will be a ratio one provincialfacilitator for each 30 teachers.
Teachers' Network
42. In order to consolidate a true training system in which actions can be institutionalized,teachers will receive counseling in their groups or in larger group meetings, and the effects of training will be monitoredin the classroom. These actions will be compatiblewith the technicaland teaching functions assignedto provincialand national supervisorsunder current regulations.
Headquarters
43. The training of provincial facilitators,teachers and supervisors will take place at headquarters located in places that are accessibleto registrants, in order to facilitate the participation of persons working in remote places with little communication. Provincial technical coordinators at their respective headquarters will be responsiblefor coordinating training dates. This impliesdealing with logistics,checking on schools and counselingprovincial facilitators when they need guidance.
Institutional Self-Assessment
44. In order to verify compliance and quality of scheduled actions, as well as to support decision- making on strengthening or correcting the processes, members of the central technical group and national supervisorswill make counselingand monitoringvisits during the developmentof activities.
45. Each supervisor will make an annual visit during teacher training. He will also make four more visits to observe the work of the teachers' network and consider the work of four of the Saturday sessions. 70 ANNEX5 MultigradeTeacher Training
46. In turn, the ProvincialTechnical Coordinator will monitor the intensive course, the operation of the teachers' network and the Saturday sessions.
47. Annual planning meetings are held with provincialtechnical coordinators, as well as assessment meetingswith provincialtechnical coordinators and supervisors,lasting at least three days.
48. The monitoring carried out by national supervisorsand provincialtechnical coordinators as well as the teachers' network will follow a general design and employ specifictools to obtain systematicand systematizeddata for use in institutionalself-assessment.
49. With the proposed assessmentmodel, it will be possibleto detect whether training objectiveshave been satisfactorilymet. Teachers, students and members of the community will be consulted for this purpose.
Equipment for Provincial TechnicalCoordination Units
50. Each provincial technical coordination unit will be supplied with equipment consisting of a monitor, video cassette player, microcomputer, printer, modem, scanner, overhead projector, and mimeographmachine. It should also be provided with a school library, sets of charts and any other resource distributedto schools whose teachers participate in the workshop seminars, in order to make the unit more familiarwith how to use and maintainthem.
Actions
To form and train a team of four technicians at headquarters plus the national supervisors of the Ministry of Education, in charge of coordinating, counseling, assessingand monitoringtraining. To train 148 facilitators(provincial education supervisors) throughout the country in the month of January, who will be responsiblefor training and monitoring the work performed by multi-classteachers. To train 3,823 multi-classteachers in rural, indigenous and disadvantaged urban areas, in teaching techniques and innovative strategies to better assist various school groups at the same time. To train 566 multi-class elementary school teachers and 198 junior high school teachers, on the use of school libraries. To carry out two congresses of multi-classteachers: a national congress in 1998 and a sub-regionalcongress in 1999. To prepare ten teacher-trainingdocuments. To print 176,810copies for use in teacher training. To prepare four sets of 120 charts for each of the four core subjects in elementary schoolgrades m, IV, V, and VI. To print 2,592,000 activity charts for use by students in multi-classschools around the country. 71 ANNEX 5 Multigrade Teacher Training
BENEFICIARY POPULATION
The target beneficiary population by province is as follows:
Province Supervisors Teachers Teachersfrom Teachersfrom J.D.A Teacher TeacherTraining Training School School Bocasdel Toro 8 285 Cocle 17 476 Col6n 7 222 Chiriqui 33 726 Darien 7 224 Herrera 19 294 LosSantos 10 253 San Bias 3 43 San Miguelito 8 32 CentralPanama 10 211 WesternPanama 13 264 Veraguas 22 793 12 400 Total 148 3,823 12 400 72 ANNEX 6 Textbooks
TEXTBOOKS AND EDUCATIONALMATERIALS SUBCOMIPONENT
Background
1. Several important developments have taken place recently in Panama with respect to the evaluation and provision of textbooks. In 1958, 431,943 textbooks were distributedwhich, although not enough for each child, supported teaching through group work. In 1970, under the ODECA- ROCAP agreement, a half million mathematics, reading, science and social studies textbooks were distributed,as well as 20,000 teachers' manuals. In 1972, the total reached 1,813,500books. Between 1976 and 1979, printed materials prepared by the Ministry of Education were distributed to support EducationalReform programs. Since then there have been no further projects to supply textbooks to schools.
2. With the support of the UNESCO-Germany 507 RLA Project, since 1992 the Ministry of Education has promoted a program aimed at strengtheningthe process of preparing, producing and usingtextbooks and reading materials.
3. For the purpose of carrying out a study on policiesand strategies in the field of textbooks and reading materials, the Expanded Commissionon Textbooks and Reading Materials was established, consisting of Ministry of Education staff and representatives of national associations dealing with textbooks and reading materials. Two important conclusionswere reached from the study: the lack of a coherent policy on this matter, and the insufficientprovision of textbooks to schools, despite efforts made in recent decades.
4. Despite a good supply of textbooks and reading materialson the market, according to a study carried out by the Ministry most of the textbooks offered by publishersfollow a traditionaleducational model based on the transmissionof contents.
5. The textbooks used by Panamanian students are selected by educators, based upon a list of titles recommendedby the Ministry followingthe initialprocedure of evaluation and approval (Decree N° 85 dated April 3, 1985, regulated by Resolution N° 663 dated April 30, 1985). The Ministry's Bureau of Curriculum and Educational Technology has gained valuable experience in the design of technicalinstruments and the procedures needed to carry out the evaluation process.
6. In recent years, several of the Ministry's staff have received training in textbook design, production and evaluation. Ministry representativesattended courses on this subject organized by the ExecutiveSecretariat of the Andres Bello Agreement(SECAB) in Santafe de Bogota and Quito, under the framework of the Educational Materials Program promoted by said institution. Several staff have written, or are presentlywriting, textbooks.
Justification
7. Studies carried out in various countries show important gains in the academic performance of students who use textbooks, in relation to those who lack them. These studies have demonstrated that the availabilityof textbooks has significanteffects on students' motivationand on the efficiencyand 73 ANNEX 6 Textbooks organizationof classwork;the textbookallows one teacherto work withseveral children at the same time,favors independent study, helps make curriculum objectives explicit and tums them into learning activities.
8. Recentresearch by the Ministryof Educationreveals that in Panama6 7.90/o of textbooksare purchased,meaning that onlythose familieswith a better economicstatus can buy them. In areas of extremepoverty, where both childrenand teachersrequire greater assistance (most schools have multi- grade classroomsin whicha singleteacher must teach variousgrades at the same time),schools lack the libraries,textbooks, reading materials, and proper educationalmaterials that parentsare unableto provide.
9. The textbook provision plan, which will be aimed at the country's poorest schools, stems from the theory that the availability of textbooks and other educational materials, together with other educational efforts such as curriculum review, teacher training, improvementof schools and libraries, and the establishment of a system to evaluate academic performance, may contribute towards improvingthe quality of education.
Objectives a) To devise and implement a plan to supply textbooks, supplementary books and educational materials aimed at the country's poorest schools, structured in such a way as to become self- sustainable. b) To contribute towards improvingthe quality of general, basic education in the country's poorest areas by supplying appropriate textbooks and educational materials that make the work of teachers and students more efficient. c) To contribute towards encouraging students to read through the creation of school librariesthat serve both the school and the comrnunity. d) To strengthen the Ministry of Education's institutional and technical capacity with respect to textbook evaluation,selection, distributionand use.
Products
Under this Project subcomponent,the followingresults will be obtained: a) Creation and training of a working team: in order to develop the textbook component, a group will be formed in the Ministry of Education, comprised of specialistsin each of the basic disciplines;in reading and writing, children'sand juvenile books, and textbooks. b) Evaluation instruments: under the framework of the Project, the Technical guide for evaluating teachingmaterials, currently used to approve textbooks circulated on the domestic market, will be restructured so that it may also be used in the process of evaluatingand selecting textbooks for the Project. 74 ANNEX6 Textbooks c) Procedures: the necessary procedures will be designed to organize the tasks of bidding, evaluating, selectingand supplyingtextbooks. d) Provision of textbooks: purchase and distribution of textbooks, recreational and reference books, and a basic set of educationalmaterials to _schools located in areas of extreme poverty. e) Production and distribution of activity charts to motivate teachers to use more dynamic, participatorymethodologies. f) Training of teachers in schools covered by the Project to make optimal use of the books distributedby the textbook provisionplan. g) Monitoring: developmentof a monitoringand evaluation system to provide ongoing information on the circulationand use of the textbooks supplied to the educationalcenters covered by the Project.
Monitoring
10. The Project offers a substantial contribution towards improving the quality of education by implementingan action plan aimed at supplyingtextbooks and educationalmaterials through classroom and school libraries;promoting and implementinginnovative methodologies leading to optimal use of materials; improving the skills of teachers, especially those who work with various grades simultaneously;supplying activity charts created through the use of dynamic methodologies for independent learning; and including parents and the community in the search for solutions to educationalproblems.
11. A plan to supplytextbooks, recreationaland referencebooks, and educationalmaterials will be implemented,aimed at all multigrade-classin the country and the unigrade primary schools and the lower secondary schools located in classifiedas poor and extremely poor according to the poverty index. Mathematics and reading-writingtextbooks will be supplied to the first two grades, After third grade, science and social studies texts will be included.Ratio will be one textbook for every student.
12. The textbook provision plan will be based on the textbooks, books and educational materials available on the market, following a strict evaluation process. Publishers should make changes to textbooks as suggested by the evaluation committees,in order to better adjust the books to school needs. Textbooks will be printed in four ink colors, may not be expendable,and must be accompanied by teachers' manuals.
13. The textbooks will become school property and form part of school librariesthat will contain, besides these textbooks, a selection of about 30 recreationaland reference books. Twelve books by Panamanianauthors of children'sand juvenile literaturewill be selected, and participatingfirms will be invited to submit bids for the graphic design and printing of these books. These books, as well as textbooks, will form part of the books suppliedto school and classroomlibraries. 75 ANNEX 6 Textbooks
14. Children may borrow texts and books from the libraiy to take home. Both teachers and parents will receive trainingto ensure the sustainabilityand best use of libraries.
15. Along with the provision of texts, books and materials, teachers, supported by technical staff from the Ministry of Education, will prepare "activity charts" under the framework of the Project, aimed at enrichingthe overallteaching-learning process; the most original charts designed by teachers will be publishedand circulated.
Implementation
16. Books and educationalmaterials to be supplied to schools, and purchased on the domestic and internationalmarkets, will be evaluated to selectthose that best meet selection criteria and to determine the changes that winningpublishers should introduce in the specialversions to be distributedunder the plan.
17. Publishersof textbooks and educationalmatters will be invitedto submit bids. With the advice of an international consultant, the Ministry's textbook working group will design special tools to evaluate books and will organize and train the committees responsible for evaluating bids from a technical and instructional standpoint, under the direction of the Ministry'steam of specialists. The Ministrywill strengthen its technical capacity to respond efficientlyto the new needs of evaluating and selectingbooks and materials.
18. The development of activities related to this component will be the responsibility of the coordinatingteam set up by the Ministry for this Project (numeral 4). This team will be comprised of staff currently working in the Ministry who have had some experience in designing and evaluating textbooks. It is also expected that local and international advisers will be hired to support the Ministry'sstaff in those areas in which the Ministry either has no experience or requires specialized assistance.
19. Ad hoc committees will also be formed to evaluate, from a technical and instructional standpoint,the textbooks submittedby publishersduring the bidding process; relevant procedures will be designed for this purpose. Under the framework of the Project, both the permanent and committee staffs will receivetraining in textbook evaluation.
20. The Ministry's staff for this component will design a distribution system to ensure that textbooks and materialsreach their final destination. Textbooks and educationalmaterials will be sent by winning publishersto the ProvincialOffices of Education, boxed for subsequent distributionto the schools. Publishers should include distribution costs in their bids. At each Provincial Office, a coordinator will receive and supervise the quality and quantity of materials received and send them to schools through the zone supervisor who in turn will deliver them to parents' associations in each beneficiarytownship; these associationswill be responsiblefor overseeingthe delivery,proper use and return of textbooks at the end of the school year. Parents are also expected to participate in caring for classroomand school libraries,for which they will receive specialtraining. 76 ANNEX6 Textbooks
21. Alongwith the distribution,the Ministrywill publishand widely disseminatethe list of materials deliveredto each school in order to keep communitiesduly informed.
22. School teachers and principals will receive training in the use of textbooks, in encouraging students to read, and in handling the school library. Two educators will be selected per school to disseminateinformation, acting as technicaland administrativecoordinators, respectively.
23. After the second year, it is expected that a percentage of the textbooks deliveredto schools will be lost or damaged. The community, teachers and the students themselveswill be encouraged to take care of the textbooks and students and parents will be invited to end school periods repairing the damaged books.
24. There will be an ongoing follow-up on all these actions through supervision visits, meetings with participatingteachers, and surveys of teachers, students and the community. 77 ANNEX7 StudentAssessment
STUDENT ASSESSMENT SYSTEM
Background
1. Partial, limited efforts have been made in Panama to measure students' academic performance. Between 1981 and 1985, as part of the Research Program to Evaluate Educational System Achievements (an OAS Regional Program), third and sixth grade students in sample schools in the provinces of Cocle and Panama were tested on their basic knowledge and on the four basic subjects. The results were used to prepare teacher training programs and curriculum adjustments in the province of Cocle.
2. A Diagnostic Testing Program began in 1985, under which tests were administered in the sixth grade and sixth year to a sample of students nationwide. In 1985 tests were administered on the four basic subjects in the sixth grade, and in 1986 in the sixth year in Spanish, mathematics, English, physics, chemistry and biology. These sample tests were repeated in 1987 but were suspended in 1988 and 1989. A third round of testing began in 1992 in a sampling of 10 schools in four provinces, with tests on the six subjects mentioned above and in the third and sixth years. Finally, we should note the important precedent established by the work of the Center for the Study of Educational Quality (CECE) which in recent years has been administering tests of Spanish and mathematics among a sampling of 30 schools in Panama City. The purpose of these tests is to bring about positive reactions from students, teachers and parents in order to define ways to improve the quality of education.
Objectives
* To systematically and periodically assess the achievement of written and actual curriculum objectives in strategic grades and years of primary and intermediate education, in order to provide reliable, valid data that can be used in decision-making that will influence the improvement of education in Panama and the assessment of the Basic Education Project's impact. * To sponsor the specific emergence of curricular application models and/or modernization of curricular offerings, so that graduates of the system will be able to efficiently join the country's economic system and contribute effectivelytowards achieving peace. * To evaluate the level of school readiness in terms of cognitive, emotional and psychomotor skills of children entering first grade, in order to contribute towards assessing programs to improve preschool education. * To investigate the relationship between academic achievement and contextual variables of the student, teacher, school, home and community. * To evaluate socio-emotional factors of students in order to analyze the influence of such factors on academic achievement. . To achieve institutional, professional and material strengthening of this component's executing unit: the National Educational Quality Assessment System (SINECE). 78 ANNEX7 StudentAssessment
Targets
3. The results of achievement, school readiness and socio-emotional tests under this subcomponent are quantified by: items produced, tests administered, reports produced, and dissemination of results obtained. For research projects on contextual variables and research on the impact of data, the results are quantified in questions for surveys, surveys administered and report preparation.
4. The quantities of each of these results in each year of the Basic Education Project's implementation are presented in Annex N° 3 as product indicators.
Description
5. This subcomponent is comprised of six projects: a) preparation, validation and administration of achievement tests; b) research - efforts to modernize curricular performance; c) preparation, validation and administration of the school readiness test for children entering first grade; d) preparation, validation and administration of socio-emotional tests; e) research on the relationship between contextual variables of the student, teacher and school and the student's academic achievement and socio-emotional variables; f) research on the impact and use of data produced by the administration of achievement, school readiness, and socio-emotional tests. Annex N° I contains a detailed timetable of tasks.
6. Achievement tests. Achievement tests will be prepared, validated and administered for the four basic subjects: Spanish, mathematics, natural sciences and social sciences. Starting in 1996, these tests will be administered to a random nationwide sampling of 10% of third and sixth grade students in primary school and of the third and sixth years of secondary school. In even years testing will be administered to third grade and third year students, and in odd years to sixth grade and sixth year students.
7. Research - Efforts to modernize curricular implementation. The results of achievement tests and later of socio-emotional tests will be used to carry out information and incentive efforts so that teachers, students and parents can seek ways to improve curricular implementation. This research will be performed annually starting in 1996, with samples from 30 schools throughout all of the country's provinces.
8. School readiness test. A test of school readiness in terms of cognitive, emotional and psychomotor skills will be developed and validated for children entering the first grade of elementary school. This test will be administered to a stratified random sampling of 5% of children entering first grade, beginning in 1998. The data obtained will be used to assess current preschool education programs and those financed by the Basic Education Project.
9. Socio-emotional tests. Beginning in 1999, tests will be developed and validated to measure socio-emotional variables that complement the assessment of students' achievements in elementary and secondary schools. These tests will be administered to the same sampling of students who take the achievement tests. 79 ANNEX7 Student Assessment
10. Research on contextual variables. In order to better understand the factors that affect students' academic achievement, correlating and ex post facto studies will be performed to relate the contextual variables of the student, teacher, school and community with the outcome of achievement and socio-emotional tests. This research will use surveys and interviews that will be administered in parallel with achievement tests, beginning in 1996.
11. Research on the impact of data. A system to assess Educational Quality provides data that should be used to provide feedback on the educational system, thereby indicating any failures that may be found, and to improve education. It is therefore important to research whether the data produced is being properly disseminated and if it is having a positive effect on the educational system. This work will be performed beginning in 1997 and each year thereafter.
12. In addition to these projects, a training, consulting, internship and post-graduate study program has been established to support the projects described above. Administrative programming has been separated to ensure the proper, necessary support for the implementation of each measurement, assessment and research activity under this subcomponent. Besides the product indicators in Annex N° 3, Annex N° 2 details the process indicators to achieve better monitoring of the subcomponent.
Implementation of the Subcomponent
13. The Educational Quality Assessment System (SINECE) has been established to implement this subcomponent, with the structure indicated in figure N° 1. A detailed description of the outline and functions of each element of this organizational chart may be found in the descriptive supplementary document on this subcomponent (previous consultancy report of July 1995). 80 ANNEX 7 Student Assessment
ORGANIZATIONAL CHART
Planning Bureau
Administrative Council
Consultative.Director 1 1
Research Unit Administrative & Technical Unit
Administrator
Research Council Secretary Data Expcrt Data Processors
r ~~Projectsl
Achieve School Socia- Re- Research on Research on ment Ressadi- EEmfolsofal Contextual Impact of Data Test Test Factors 81 ANNEX 8 PRE-PRMARY
EXPANSION OF NON-FORMAL PRE-PRIMARY EDUCATION
1. Background. It is mandatory that pre-primary school services be provided, but it is not mandatory that parents send their children to pre-primary school. It consists of nursery school (Pre-jardines de Infancia) for four-year-olds, and kindergarten (Jardines de Infancia) for five- year-olds. Jardines de Infancia are one-year schooling programs that emphasize readiness for reading and writing. There are about 33,000 children enrolled in 894 Jardines de Infancia. About two thirds of these are public institutions, and the remainder are private. The majority of kindergarten students attend classes in primary school buildings. About 45 percent of five-year- olds are enrolled in kindergarten, a figure significantly lower than other Latin American countries of similar income level. In addition, the enrollment is concentrated in the richest CorregimienJos and is almost non-existent in the poor rural areas. Thus, the current program serves mostly the wealthy provinces with a curriculum developed for implementation by highly educated teachers.
2. But, at the same time, Panama began, few years ago, developing a pilot program, the Community and Family Center for Initial Education (CEFACEI), to provide community-based pre-primary services for four- and five-year-olds. The CEFACEIs use infrastructure provided by the community and a community educator (promotora), with or without formal training, to provide educational services to 15-21 children. At this time, there are approximately 1,600 children in 88 centers located in rural and marginal urban areas. Up until now, it has operated only in communities that can afford to pay a promotora. The CEFACEI program is an alternative for rural and poor areas where it is difficult to retain highly qualified teachers. However, the curriculum must be presented to poorly educated parents and community educators through clear and simple messages conveyed through appealing educational materials. The existing pre-primary curriculum is presented in excessively technical terms that require interpretation by highly trained teachers. The majority of CEFACEI promotoras are therefore limited to child care activities.
3 . This component aims to: i) expand coverage of non-formal pre-primary education among the poor to increase national coverage from 45.5 percent to 75.0 percent for five year-olds and, ii) improve the quality of non-formal pre-primary education. Coverage expansion will be based primarily on the CEFACEI (Family and Community Education Center) model. At the same time, a pilot program for rural areas of scattered population will also be developed.
4. The CEFACEI program. The project aims to open 400 new CEFACEIs, and serve approximately 20,000 pre-primary-age children over the life of the project. A pilot Mother-to- Mother program will also be implemented, to benefit approximately 1.800 pre-primary-age children in dispersed, rural communities. The quality of non-formal pre-primary education will be improved through intensive training of MOE supervisors and promoloras, the distribution of specially designed manuals for promotoras, children and parents, and the transmission of radio programs to reinforce the program and encourage healthy child rearing practices. A national team will be formed within the Directorate of Initial Education of MOE, to coordinate implementation of the component at the national level.
5. A pyramid strategy will be developed for training and supervision of the program, to facilitate the full involvement of the national, regional, provincial and local levels. The national 82 ANNEX 8 PRE-PRIMARY team will appoint pre-primary supervisors at the provincial level, who will be trained by national and international technical assistants to design the manuals for trainers and promotoras (one manual for trainers, one for promotoras, one for parents and one for each child). Provincial supervisors will conduct a meeting in each community targeted by the project, to convey the importance of pre-primary education to parents, and form a local CEFACEI Parents' Association.
6. The Parents' Association will be responsible for: i) finding a location for the CEFACEI; ii) collaborating in the opening and functioning of the CEFACEI; iii) selecting the promotora according to a profile specified by the Directorate of Initial Education; and iv) paid the Promotoras with the funds received from MOE every three months, the amount determined by the number of children attending the CEFACEI. The Promotora will be paid US$90 per child per year. Implemented gradually, the program will open 100 new CEFACEIs per year. The financial resources to pay the Promotoras will be provided by the Government as counterpart funds to the Bank loan.
7. The Mother-to-Mother Program. In rural areas with scattered population mothers will be encouraged to make team work, under the guidance of a Mother-Leader, and with the help of educational material and radio programs to improve their child-rearing practices. Training of the mother-leaders will be the responsibility of the supervisors and pre-primary education specialists in each provincial office of MOE. Ten regional MOE supervisors will be trained for 10 days in year I and ten days in year 2 of the project. They will train the 300 mother-leaders, chosen by the participating mothers, for seven days each. Thirty mother-leaders will be trained each year. It is estimated that each participating mother is raising an average of 2.0 children. Therefore, 2,400 children will benefit directly from the project.
8. As in the case of the CEFACEIs, a pyramid strategy will be developed for training and supervision of the program, to facilitate the full involvement of the national, regional, provincial and local levels. Interested communities will then select a woman to be trained as a mother leader. Each supervisor will work with a group of about 15 mother leaders throughout their two-year tenure. He/she will give an initial six-day training workshop, focusing on the following topics: i) the circumstances of childhood in rural areas and in particular, in each community where the mother leaders reside; ii) group dynamics; and iii) analysis of the Mother-to-Mother Program, including materials and implementation. The supervisor will supplement this initial training with four more three-day workshops over the two-year period, and periodic monitoring of the progress of each mother leader.
9. Each mother leader will train a group of 10 mothers to instruct their pre-primary-age children for two years, in a series of weekly or weekly meetings. Each mother will be instructed in a series of thematic units and provided with a set of manuals for use with her children. Implementation of the Mother-to-Mother Program will be gradual, concentrating efforts in only two or two provinces: Veraguas and Chiriqui.
10. Mother-leaders will be paid on a per mother-participant basis, that is, they will receive US$ 32 per year for each participating mother they train in bi-weekly meetings over a ten-month period. Funds to pay the mother-leaders will be transferred from the central office of MOE to the 83 ANNEX 8 PRE-PRIMARY bank accounts of the regional MOE offices. MOE's supervisors will monitor the number of mothers being taught, in order to ensure appropriate payment of the mother-leaders. The financial resources to pay the mother-leaders will be provided by the Government as counterpart funding for the Bank loan
11. The current curriculum will be revised to stress simple problem-solving, self-care and school readiness skills. The emphasis will be on an open, flexible curriculum focused on the child with parental participation. The strategy for producing a simple core curriculum will be to focus on making each concept operational in training manuals. Two types of manuals will be produced: manuals to train the promotoras in the use of the new curriculum, and manuals for the promotoras to use in teaching. The manuals will be adapted to address rural mother-leaders and mothers participating in the program, both of which have very little formal education. The adapted manual will be a simplified, shorter version, relying heavily on drawings and visual messages. Thus, a total of four manuals will be produced. A special working group will be formed within the Directorate of Initial Education to produce the manuals with national and international technical assistance. The project will finance the technical assistance to produce the manuals.
12. Radio Programs. The current pre-primary programs, both, formal and CEFACEIs, fail to involve parents, which is crucial as the dominant share of intelligence develops in early childhood. Radio programs are an alternative to involve parents, enhance their ability to create learning situations for their kids, and it does it in a simple and appealing way. Radio programs also provide Promotoras and Mother-Leaders with effective reinforcement to the training and to the written educational materials they will receive. Radio is accessible to everybody, and, what is important within the project, to the poor. Radio is part of their daily life, especially in remote areas. Radio is used in Panama to help families to communicate messages, for example, messages from travelers from remote rural areas to relatives in the towns. Radio is not as expensive as other media like TV. Another advantage is the fact that the country, as almost all countries, has human resources acquainted with the production of messages for radio.
13. A set of 40 radio programs of 5-7 minutes each will be produced by a team of local and international consultants during the first and second year of the project. The content of the programs will be mainly instructions to perform a set of activities geared toward selected objectives of early childhood development.
14. Local radio stations from the provinces are willing to broadcast the programs. It is expected that some I I small radio stations will participate in the project. Each program will be broadcast twice every week and, at the end of the 40'hweek they will be broadcast again.
15. Demand for pre-primary education will be promoted through the following: i) display of posters detailing the CEFACEI and Mother-to-Mother Programs in public places such as town halls, health centers, churches, schools, supermarkets, etc.; ii) distribution of pamphlets about the different programs, targeted to parents and community-based organizations; iii) distribution of brochures about the different programs to governors, mayors, municipal staff, school directors, community directors, etc. Analysis of technological alternatives to support a learning process
Issue: The kindergarten curriculum currently handled by preschool educators in the formal pre-primary classrooms vill not be easily handled by community educators. Objective: Select the best option of a technology or combination of technologies to help community educators to develop the curriculum and to get parental involvement in the process.
Workshops Written educational Radio T.V. materials
Type of learning Changes on behaviors Reaches community Useful tool if The radio messages can The most complete in terms process involved and attitudes educators but not reinforced with capture the attention of the of trying to impact on parents. Needs workshops or other targeted population used to attitudes and behaviors. reinforcement means. Along might rely on radio to get messages not be sufficient. with the same objectivesof changing attitudes and behavior.
Type of population Adult; low education; Adult working women Same as above. Good alternative to reach T.V sets are not available in 00 located in rural areas. cannot gather scattered population. many areas. The frequently for training educational channel only purposes. reaches the capital. Strong competence from commercial programs. Local human resources Available Available Training needed. Training needed.
Local physical Available Available Available. There are plenty Lack of T.V. sets and/or resources of local radio stations willing electricity in some areas. to air these type of programs Low coverage of the at reasonable prices or for educational channel. free. Expensive fees for time in commercial channels. Strong competence from e commercial programs.
X PANAMA- Basic EducationProject ComponentsProject Cost Summary
% % Total (Balboa Million) (USSMillion) Foreign Base Local Foreign Total Local Foreign Total Exchange Costs
A. Improvementin Basic Ed. Quality & Access In-ServiceTeacher Training 2.15 0.12 2.27 2.15 0.12 2.27 5 4 EducationalMaterials 1.14 3.90 5.04 1.14 3.90 5.04 77 10 EducationAssessment System 1.18 0.89 2.07 1.18 0.89 2.07 43 4 Scholarships for Poor Students 11.67 - 11.67 11.67 - 11.67 - 23 PrimarySchool Rehabilitation 17.49 0.85 18.34 17.49 0.85 18.34 5 35 Subtotal Improvement in Basic Ed. Quality & Access 33.63 5.75 39.38 33.63 5.75 39.38 15 76
B. Expansion of Non-Formal Preschool Ed. LI ExpandingCEFACEI Program 4.07 0.76 4.83 4.07 0.76 4.83 16 9 Mother-to-motherPilot Proj. 0.24 0.15 0.39 0.24 0.15 0.39 38 1 Subtotal Expansion of Non-Formal Preschool Ed. 4.31 0.91 5.22 4.31 0.91 5.22 17 10 C. InstitutionalStrengthening ManagementInformation System 1.89 2.79 4.68 1.89 2.79 4.68 60 9 Dev. Planning& Sprvsn Capacity 0.21 0.10 0.31 0.21 0.10 0.31 32 1 Policy Making Studies - 0.58 0.58 - 0.58 0.58 100 I ProjectCoordination & Managemcnt 1.18 0.35 1.53 1.18 0.35 1.53 23 3 Subtotal Institutional Strengthening 3.28 3.81 7.09 3.28 3.81 7.09 54 14 41.22 10.47 51.69 41.22 10.47 51.69 20 100 PhysicalContingencies 2.08 0.52 2.60 2.08 0.52 2.60 20 5 Price Contingencies 3.08 0.64 3.71 3.08 0.64 3.71 17 7 i
ITotalPROJECT COSTS 46.37 11.63 58.00 46.37 11.63 58.00 20 1 PANAMA - Basic Education Project Project Components by Year - Totals Including Contingencies (USS Million)
Totals Including Contingencies 1996 1997 1998 1999 2000 Total
A. Improvement in Basic Ed. Quality & Access In-Service Teacher Training 0.31 0.67 0.81 0.68 0.05 2.52 Educational Materials 0.05 1.86 2.15 0.05 1.55 5.67 Education Assessment System 0.71 0.48 0.41 0.38 0.32 2.29 Scholarships for Poor Students 0.98 2.02 3.11 3.19 3.27 12.58 Primary School Rehabilitation 2.91 5.40 5.54 4.98 2.51 21.34 Subtotal Improvement in Basic Ed. Quality & Access 4.97 10.44 12.03 9.27 7.70 44.41 B. Expansion of Non-Formal Preschool Ed. Expanding CEFACEI Program 0.67 0.67 0.96 1.28 1.69 5.26 Mother-to-mother Pilot Proj. 0.09 0.10 0.05 0.10 0.08 0.43 Subtotal Expansion of Non-Formal Preschool Ed. 0.76 0.78 1.01 1.37 1.77 5.69 C. Institutional Strengthening oo Management Information System 0.86 1.41 1.25 1.09 0.60 5.21 Dev. Planning & Sprvsn Capacity 0.09 0.07 0.08 0.07 0.04 0.34 Policy Making Studies 0.19 0.16 0.28 - - 0.63 Project Coordination & Management 0.36 0.32 0.33 0.34 0.35 1.71 Subtotal Institutional Strengthening 1.49 1.97 1.94 1.50 0.99 7.90
Total PROJECT COSTS 7.23 13.19 14.98 12.15 10.46 58.00
0
W.
=-X PANAMA - Basic Education Project Components by Financiers (USS Million)
The Government Local 1BRD of Panama Total For. (Excl. Duties & Amount % Amount % Amount % Exch. Taxes) Taxes
A. Improvement in Basic Ed. Quality & Access In-Service Teacher Training 2.52 100.0 - 2.52 4.4 0.13 2.40 Educational Materials 5.67 100.0 0.00 - 5.67 9.8 4.39 1.28 Education Assessment System 2.26 98.8 0.03 1.2 2.29 4.0 0.97 1.32 Scholarships for Poor Students - 12.58 100.0 12.58 21.7 - 12.58 Primary School Rehabilitation 16.71 78.3 4.63 21.7 21.34 36.8 0.93 20.41 Subtotal Improvement in Basic Ed. Quality & Access 27.17 61.2 17.24 40.0 44.41 76.6 6.42 37.99 - oo B. Expansion of Non-Formal Preschool Ed. Expanding CEFACEI Program 1.12 21.3 4.14 78.7 5.26 9.1 0.84 4.42 Mother-to-mother Pilot Proj. 0.29 66.5 0.14 33.5 0.43 0.7 0.17 0.26 Subtotal Expansion of Non-Formal Preschool Ed. 1.41 24.8 4.28 75.2 5.69 9.8 1.01 4.68 C. Institutional Strengthening Management Information System 3.80 72.9 1.41 27.1 5.21 9.0 3.07 2.15 Dev. Planning & Sprvsn Capacity 0.34 100.0 - 0.34 0.6 0.11 0.23 Policy Making Studies 0.63 100.0 - - 0.63 1.1 0.63 - Project Coordination & Management 1.65 96.4 0.06 3.6 1.71 2.9 0.39 1.32 Subtotal Institutional Strengthening 6.42 81.3 1.48 18.7 7.90 13.6 4.20 3.70
Total Disbursement 35.00 60.0 23.00 40.0 58.00 100.0 11.63 46.37
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C
ci PANAMA - Basic Education Project Expcnditure Accounts by Years - Totals Including Contingencies (USS Million)
Totals Incl. Contingencies 1 1996 1997 1998 1999 2000 Total
L Investment Costs A. Civil Works 2.50 4.81 4.94 4.36 2.12 18.50 B. Vchicles 0.03 - - - - 0.10 C. Equipment 1.07 0.99 0.82 0.50 0.00 3.20 D. Furniture 0.19 0.19 0.20 0.21 0.21 1.00 E. Training 0.26 0.87 1.03 0.89 0.21 3.40 F. Educational Materials 1. Textbooks and Teachers' Guides - 1.52 - - 1.47 3.20 oo 2. Library books - - 2.2 - - 2.20 3. Activity Cards - 0.29 - - - 0.30 4. Pre-school manuals 0.32 0.17 0.18 0.24 0.25 1.80 5. Assessment Sys. Materials 0.12 0.18 0.12 0.08 0.08 0.50 Subtotal Educational Materials 0.44 2.15 2.41 0.32 1.81 7.50 H. Consultants, Studies & TA 1. Consultants & TA 1.05 0.75 0.67 0.70 0.67 3.90 2. Studies 0.41 0.39 0.52 0.24 - 1.50 Subtotal Consultants, Studies & TA 1.46 1.14 1.18 0.95 0.67 5.60 Total Investment Costs 5.95 10.17 10.59 7.22 5.03 38.10 I Recurrent Costs A. Fees for Promotoras 0.28 0.54 0.82 1.12 0.821.52 1.12 4.004.00~~~~~~~~~~~~~~~~~~~~~~~~~~~.1 B. Scholarships 0.98 2.02 3.11 3.19 3.27 12.60 C. Supplies&maintenance 0.02 0.45 0.46 0.62 0.63 2.10 Total Recurrent Costs 1.28 3.02 4.40 4.93 5.43 18.70
Total PROJECT COSTS 7.23 13.19 14.98 12.15 10.46 58.00
I Due to rounding,annual amounts maynot addup to totals.
'.0 89 ANNEX 9 Project Costs and Financing
PANAMA-Basic Education Project Withdrawals of the Proceeds of the Loan
Category Amount of the % of Expenditures Loan allocated to be financed (Expressed in USS)
(1) Works under Part A.5 of 13,500,000 78% the Project (2) Goods (other than 4,300,000 100% of foreign expenditures and 95% Educational Materials) of local expenditures. (3) Educational Materials 5,400,000 100% of foreign expenditures and 100% of local expenditures. (4) Printing Services 1,100,000 100% of local expenditures. (5) Consultants' Services and 8,400,000 100% Training (6) Unallocated 2,300,000
TOTAL 35,000,000
PANAMA- BasicEducation Project Estimated Disbursements Timetable
Fiscal Year 1997 1998 1999 2000 2001 2002 Annual 5.5 6.8 9.3 8.0 3.1 2.3 Cumulative 5.5 12.3 21.6 29.6 32.7 35.0 FORECAST SECTOR BUDGET Table 1: Expected Financial Impact of the Project as Percent of Forecast MOE's Recurrent Cost Budget (in USS million) Real GDP" Education MOE's Recurrent Cost Budget3 ' The Project Financial Impact Year Sector (excluding investments & Generated of the Project on Budget2' education security fund) Recurrent MOE's Recurrent No Project with Project Costs4' Cost Budget (1) (2) (3) (4) (5) (6) (4)=(3)+(5) (6)=(5)/(3) 1994 6594.1 356.1 214.1 1995 6824.9 368.5 214.6 1996 7029.6 379.6 228.3 228.6 0.3 0.1% 1997 7275.7 392.9 236.3 237.3 1.0 0.4% 1998 7530.3 406.6 244.6 245.8 1.3 0.5% 1999 7793.9 420.9 253.1 254.9 1.7 0.7% 2000 8066.7 435.6 262.0 264.1 2.2 0.8% 2001 8349.0 450.8 271.1 273.3 2.2 0.8% ° 2002 8641.2 466.6 280.6 282.8 2.2 0.8% 2003 8943.7 483.0 290.5 292.6 2.2 0.7% 2004 9256.7 499.9 300.6 302.8 2.2 0.7% 2005 9580.7 517.4 311.1 313.3 2.2 0.7% 2006 9916.0 535.5 322.0 324.2 2.2 0.7% e
2007 10263.1 554.2 333.3 335.4 2.2 0.6% -' 2008 10622.3 573.6 345.0 347.1 2.2 0.6% 2009 10994.0 593.7 357.0 359.2 2.2 0.6% 2010 11378.8 614.5 369.5 371.7 2.2 0.6% Notes: 1/ The real GDP (in 1992 USS) growvthrates was 4.0 in 1994, 3.5 in 1995, and 3.0 in 1996, and would increase to 3.5 from 1997 through 2010 based on the CAS, December 1994.
2/ Assumes the share of the education budget would remain at about 5.4 percent of GDP over the 1996-2010. C 3/ Assumes the share of MOE's (preprimary, primary & sccondary) recurrcnt cost budget would remain at about 60 percent of the total education sector budget. 4/ Including only fees for promoters and rural preschool children, and operation and maintenance of infrastructure, equipment, furniture and office supplies. E Z Scholarships for poor students will be covered by the education security fund.
.~ o PANAMA - Basic Education Project
Ministry of Education Budget (pre-primary, primary and secondary) by Functional Catregory
1991 1992 1993 1994 1995 Category US$ m % recurrent US$ m % recurrent US$ m % recurrent US$ m % recurrent USS m % recurrent
Personnel 164.3 90.3% 189.2 90.5% 190.6 89.3% 193.8 90.5% 201.7 94.0% Non-personnel 7.7 4.2% 8.5 4.1% 8.7 4.1% 7.5 3.5% 4.7 2.2% Materials & Supplies 2.9 1.6% 1.5 0.7% 5.2 2.4% 4.6 2.1% 0.8 0.4% Minor Equipment 0.2 0.1% 0.2 0.1% 0.6 0.3% 0.2 0.1% 0.1 0.0% Transfers & subsidies 6.8 3.7% 6.8 3.3% 7.0 3.3% 7.5 3.5% 7.2 3.3% Other Costs 0.2 0.1% 2.8 1.4% 1.3 0.6% 0.6 0.3% 0.2 0.1%
Total Recurrcnt Costs 182.0 100.0% 209.0 100.0% 213.3 100.0% 214.1 100.0% 214.6 100.0% Total Capital Costs 15.1 17.5 36.1 22.9 13.9
Educational Security' 11.4 12.0 15.5 16.3 20.7 *1 Grand Total 208.5 238.5 264.9 253.3 249.2 :_
1/ The resources of the Educational Security (Seguro Educativo) are collected by the Government through income tax. This resource was utilized as scholarships for awarding good students and needy poor students.
0
- 2 92 ANNEX11 ProjectAdministration Unit
ORGANIZATION FOR PROJECT IMPLEMENTATION
Organization of Project Administration Unit
1. A Project Administration Unit (PAL) will be established for technical, administrative and financialmanagement during project preparation and implementation.The PAU will be located within the structure of the Ministry of Education (MfNEDUC), directlysubordinate to the Central Office.
2. The Project Coordinator will report to the Central Office and coordinate the project's preparation and implementationwithin MfNEDUC and between MINEDUC and other government and non-government institutions and with the World Bank, and will have overall responsibilityfor submittingand implementingthe project accordingto agreed, programmedschedules.
3. A Unit Coordinator, with executive functions,will be appointed to coordinate project actions with the Ministry's corresponding agencies. He will be supported by a technical coordinator and an administrative-financialcoordinator. According to the project's needs, high-level professional consultants willjoin the project. They will be responsiblefor supporting the Ministry'sgroups or units with respect to each of the project'ssubcomponents and will liaisewith the corresponding departments.
4. The Technical Coordinator vill be responsiblefor technicalmanagement of the project, while the Administrative-FinancialCoordinator's duties will be related to project finances and administration. Three additional experts will support, respectively:(i) procurement,bidding and contract processes; (ii) disbursement and accounting matters; and (iii) consolidation of technical data on subcomponents as well as assistance with InformationSystems.
5'. For specializedmatters, the PAU may rely on advisers-consultantswho will support criteria of complementarityand relationsamong components.
6. The PAU will receive strategic guidelinesfrom the Ministry'sCentral Office (Minister, General Secretariat,and required agencies).
The PAU's Functions
7. The functions of the Project AdministrationUnit (PAU) will be to: a) Carry out the project execution (implementation)process, in accordance with decisions and approvals from the Central Office and with the project's generaltimetable. b) Establish and start up processes and procedures for project implementation in each of its components and subcomponents,according to their respectiveobjectives and schedules. c) Provide and coordinate technicalassistance to execute activitiesin each component. 93 ANNEX 11 Project Administration Unit d) Coordinate programming with the responsibilitiesand resources of implementingunits (within and outside the Ministry of Education), and follow up and supervise the implementationof actions in each component; request periodic status reports on project activitiesfrom units of the Ministryof Education. e) Develop and start up an administrative and financial system for the project, as well as administrativeand accounting procedures and controls to carry out the investmentplan. f) Provide financial, administrative and legal assistance and corresponding controls for each component and subcomponent. g) Maintainan accountingsystem for project implementationto record accounts and expenditures. h) Prepare terms of reference for specialized consultants, submit them for approval and later supervisetheir work. i) Cany out the process of procuring the goods and servicesrequired by the project. j) Support the implementationof the Evaluation subcomponent, according to the guidelines and strategy defined by the Ministry of Education, as well as to complementother related actions. k) Support the implementation of the school textbook subcomponent, in coordination with the National Bureau of Curriculum and Educational Technology and with the units appointed or establishedfor this purpose.
I) Support the implementation of the Management Information System subcomponent, in coordination with the National Bureau of Finance and Institutional Development and with the units appointed or establishedfor this purpose. m) Support the implementation of the Institutional Strengthening subcomponent, in coordination with the National Bureau of Finance and InstitutionalDevelopment and with the units appointed or establishedfor this purpose. n) Support the implementation of the Early Education subcomponent, in coordination with the Bureau of Early Education and other organizations involved in the implementationprocess, according to procedures that may be promoted. o) Support the implementationof the Infrastructurecomponent to be implementedthrough the FES, upholding the Ministry of Education's requirementsand followingup on the various contracts and works. p) Act as a counterpart to World Bank rnissionswith respect to the coordination, programmingand implementationof project activities. 94 ANNEX 11 Project Administration Uiiit q) Report periodicallyto the Central Office on project-relatedissues and on physical and financial progress reports, and prepare proposals for corrective measuresin the case of variations. r) Establish a schedule by component and subcomponent with a control system to allow the generation of data required for periodic reports and annual evaluations. s) Prepare terms of reference, organize, coordinate and carry out the mid-tern review of project implementation. t) With the support and participation of implementingunits within the Ministry of Education, prepare the reports to be presented to the World Bank.
Duties of PAU Staff
8. The General Project Coordinator (Unit Chief) will be responsible for managing project implementation and keeping a general eye on the coordination of actions. The General Project Coordinator will submit proposals and recommendationsregarding implementationto the Ministry's Central Office, and propose corrective measures as required. He will maintain close communications with the Ministry'sbureaus in charge of implementingactivities under the various project components as well as with other related agencies (TFARHU,FES, MIPPE and the World Bank),
9. He will promote institutionaldevelopment actions to enable or streamline the performance of project actions accordingto schedule.
10. He will inform high-levelauthorities of the Ministryof Education about progress and outcomes of the monitoringprocess.
11. The Technical Coordinator will be responsiblefor technical management of the project and for comprehensivenessand complementarityamong project subcomponents. Besides coordinating actions, deadlinesand results, he will monitor the implementationof subcomponent actions according to schedule and advise subcomponent officers and consultants on technical and educational issues. Likewise, he will be responsiblefor supporting data processing and managementof systems to control and monitorproject implementation.
12. The Administrative and Financial Coordinator will be in charge of the project's administrative management and financial control, and of coordinating with those responsible for implementingcomponents with respect to accounting issues, disbursementsand audit reports. He will prepare the corresponding financial reports and supervise the process of procurement, bidding and contracts.
13. The Disbursementand Accounting Officer will work under the administrativeand financial coordinator, acting as the focal point for the processing of project disbursement applications by the World Bank. He will coordinate closely with the procurement officer and maintain an administrative database. 95 ANNEX11 Project AdministrationUnit
14. The ProcurementOfficer, working under the administrativeand financial coordinator, will be in charge of the processes of project procurement, bidding and contracts. He will prepare standard documents and coordinate with technical staff to prepare specialconditions for procurement or hiring of consultantsas well as technicalspecifications.
15. The officer in charge of consolidating technical data, working under the Technical Coordinator, will be responsiblefor administeringthe PAUs informationsystem and for consolidating technicaldata on subcomponents.
16. Subcomponent Units will work in those administrativesections of the Ministryof Education directly involved in the project. They will be responsible for the implementationand monitoring of their respective subcomponents and work in coordination with the PAU's technical coordinator who will be supported by consultants in each subcomponent to establish targets, achievements and adjustmentsin project implementation.
17. Consultants/advisorsin various subjects will provide temporary support to the responsible units in the Ministry of Education and liaisewith the PAU through the TechnicalCoordinator who will oversee the work of the consultants to ensure that they fulfilltheir establishedterms of reference and contracts.
18. A matrix-type organization is proposed for project execution, so as to utilize the Ministry of Education'sformal structures to carry out project actions in accordance with respective specializations. This calls for a specialized,streamlined PAU to facilitate project implementation,combining teams of speciallyhired experts as well as staff of the Ministry of Education'sorganizational units. The Ministry of Education's institutionalstrengthening process will be decisivein making the best use of experiences from project implementation.
19. The Operational Manual of the PAU will include, among other things: (i) the structure and functions of the PAU; (ii) the definitive operational arrangements for financial administration of the pre-primary expansion subcomponent, including a line budget for fees for the promotoras; (iii) final standard bidding documents for civil works, textbooks, classroom libraries and MIS; (iv) the first annual plan for civil works, including the civil works contract between MOE and FES; and (v) draft terms of reference for the policy studies. 96 ANNEX12 Project Impactand OutputIndicators
PROJECTOUTPUT INDICATORS
INDICATOR 1996 1997 1998 1999 2000 Total IMPROVEMENTIN BASIC EDUCATION QUALITYAND EQUITY
TrainingSub-Component
Training of CEFACEIPromotoras 100 100 100 100 400 Mother Leaders(Mother-to- 50 50 100 100 300 Mother Program)
Training of Trainers in Multigrade 155 Methodology
Training of MultigradeTeachers 3,800
Training of Unigrade teachersat primaryand 3,000 3,000 secondarylevel (use of librariesand textbooks)
Educational Materials
Distributionof pre-primarypackages to the CEFACEIS(toys, manuals, textbooks, leaflets): Numberof centers(new) 100 100 100 100 400 Numberof centers (cumulative) 100 200 300 400 400 Numberof promotoras(new) 100 100 100 100 400 Numberof promotoras(cumulative) 100 200 300 400 400 Numberof children 2,000 4,000 6,000 8,000 20,000
Distributionof pre-primarypackages to the district supervisorfor the mother-to-motherprogram (manualsand leaflets):
Numberof mother leaders 30 30 30 30 120 Numberof mother participants 300 300 300 300 1,200 Numberof childrenbenefitted 600 600 600 600 2,400
Broadcastingof radio programson local radio stations:
Numberof programsproduced 40 20 Numberof programsbroadcasted per year 80 80 80 8 40 0 Numberof local radio stations 11 11 11 11 11
Distributionof classroomactivity cards for 3734 multigradeclassrooms: Numberof multigradeclassrooms 3,800 3,800 97 ANNEX 12 Project Impact and Ou put Indicators
INDICATOR 1996 1997 1998 1999 2000 Total
Distribution of classroom libraries for primary classrooms Number of classrooms 6,100
Distribution of primary school textbooks:
Number of students benefited 146,804 146,804 146,804 146,804 587,216 Number of textbooks 645,936 645,936 1,291,872 Number of teacher guides 25,361 25,361 50,722
Distribution of secondary school textbooks:
Number of students benefited 37,105 37,105 37,105 37,105 148,420 Number of textbooks 148,422 148,422 296,844 Number of teacher guides 21,105 21,105 42,210
Educational Assessment Sub-Component Achievement Tests Administration of pilot tests to sample 3Q Administration of tests 4Q 4Q 4Q 4Q 4Q Issuance of reports 4Q IQ IQ lQx School Readiness Tests Administration of pilot tests to sample 3Q Administration of tests 2Q 2Q 2Q Issuance of reports 3Q 3Q 3Q Affective Development Tests Administration of pilot tests to sample 2Q Administration of tests 4Q 4Q Issuance of reports I Q
Scholarships for poor students Sub-Component Secondary students benefited 800 1,600 2,400 2,400 2,400 9,600 Primary students benefited 2,667 5,334 8,001 8,001 8,001 32,004
Primary schools rehabilitation Classroom Upgrading 264 473 473 379 115 1,704 Classroom Substitution 35 87 87 87 52 348
EXPANSION OF NON-FORMAL PRESCHOOL CEFACEI children 2,000 4,000 6,000 8,000 20,000 Pilot Mother-to-Mother children benefited 450 450 450 450 1,800
INSTITUTIONAL STRENGTHENING First two studies completed 3Q Third and fourth studies completed 3Q Discussions with the Bank and seminars 3Q completed MIS starts operations 2Q_ I PROJECT IMPACT INDICATORS
Indicator Expected chanige Instruments
Improvementin the By 10-15% from Base Line 1996. Achievementtests Levels of achievementin four subjectswill be measured (Spanish, Quality students Achievement mathematics, social sciences, natumalsciences). Students achievement Scores. will be measured every other year, through tests to third and sixth grade students in primary and school readiness (cognitive,emotional and psychomotor skills) for children entering the first grade. Increase in time spent on Substantialdifferences before and Classroom Six schools will be selected for observationat three different times learning activities.. afler delivery of project inputs. observation. during the school year to observe the actual time spent on learning. Observations will be conducted every year during a four years period. Changes in the type of Significant number of mothers Interviews. Mother-to-Mother sessionswill be observedand 10 percent of interactions betveen reporting changes in their participant mothers will be interviewed. mothers and children, as interactions with childreni. perceivcd by the mothlers.
A decrease in the gap Decrease in drop out rate from Statistics. Drop out and repetition rates by Correginiento will be processedevery Equity betwvecnpoorest and current 6.24 in targeted year. As a condition of effectiveness,data from 1994 will be produced ilo richest Corregimientosin Corregimientosto current national order to establish the base line and proposed targets repetition rates and drop average of 4.6 out rates. Decrease in repetitionby 30% from Base Line 1966.
A decrease in the gap Decrease by 30% from Base Line Statistics. Drop out and repetition rates by Gender by Corregimiento will be between females and 1964. processedevery year. Data from 1994 wvillbe produced in order to males in repetition rates establish the base line. and drop out rates in targetedCorregitrmientos..
Efficiency A decrease in the average From 12.87 to 12 for the country Statistics numberof years required to complete the Basic Education (1-9). O_O
Covcrage Increase at pre-priniary From 45 % to 75% national Statistics e coverage iC
to _6___ 99 ANNEX 13 Economic Bcnefits
ECONOMIC BENEFITS
Component: Improving Quality and Equity in Basic Education
1. Project Benefits. This component will provide high quality basic education (grades I to 9) for 183,909 students (41% of the age-group) from poor families. The cost of this component is US$30.8 million (including contingent costs), which account for 53% of the total project costs. Improving the quality of basic education will generate three kinds of benefits: the increased productivity (increased earnings)of the beneficiaries; the positive externalities resulting from their improved social achievements (e.g., reduced crime rates and better informed citizens); and the distributional gains (future poverty reduction) resulting from targeting the beneficiaries in poor localities (corregimientos).
2. This ex-ante economic evaluation has considered only the likely productivity gains that will be induced by improving the quality of basic education. The reported Internal Rates of Return (IR(R),therefore, are conservative estimates of the project worth. The approach here used is based on the premise that in market economies differences in eaming results from differences in productivity. In the case of this project productivity will result from improving the quality of primary and junior high education. On that premise the project's earning differentiais due to better education of the individuals who will benefit from this component represents the economic benefits of increased productivity.
3. Project Costs. The opportunity cost of a project that improves education quality is given by the value of the additional inputs. They include: in-service teacher training; educational materials; primary school rehabilitation; and education assessment systems.
4. Since improving of education quality reduce the dropout and failure rates, the fiscal cost of delivering schooling is reduced. These savings of education resources were discounted from the above opportunity cost (or altematively were added to the project benefits).
5. Project Worth. The IRR for education investment is the discount rate at which the net present value of benefits (increases in earnings as a proxy for productivity) minus costs equal zero. That is, if the additional eamings induced by the project would allow students through their working life to repay the cost of their improved education plus interests, the implicit rate of interest is called the IZRR.If the resulting IRR was higher than the social productivity of capital in Panama, the project is economically worth way.
6. The social IRR of the component 'Improvement of the Quality of Basic Education', varies between 15% and 24%, depending on the scenario. The scenarios refer to alternative impacts of the project on educational achievements, and of educational achievements on future eamings. Given the above estimates of the social IRR, this project component is economically feasible and its undertaking definitely justifiable (see Table 2). 100 ANNEX13 EconomicBencfits
Savings from the Expansion of the Non-Formal Preschool Component
7. Savings from the preschool component will come as a result of expanding CEFACEI preschool program (community-administeredpre-primary centers) and carrying out a mother-to- mother pilot program in rural areas (participating mothers will be trained to teach their preschool- age children).
8. In Panama the enrollment ratio of pre-primary education is only 29 percent, significant lower than that in countries such as Costa Rica and Chile. And the majority of enrollment are concentrated in urban areas thereby making it difficult for most children from rural areas to gain access into pre-primary education. In order to make it equitable and provide children with the early sensory stimulation to develop their intelligence and prepare for reading, writing and learning, this component aims to increase the coverage of pre-primary education and develop readiness skills for primary education. The low costs of community-oriented initial education programs (CEFACEI and Mother-to-Mother) would allow the benefits to reach children from low-income families.
9. The annual average cost per formal preschool child is US$288 based on the Ministry of Education's 1993 data. With the CEFACEI program, the cost per child is only US$124. The project would provide preschool education for 42,340 preschool-age children during the life of the project. The savings from CEFACEI program is about US$7 million (Tables 3, 4, 5). With the mother-to-mother program, the cost per child is US$243. This program would benefit 3,000 children in rural areas, thus the savings from this program is US$ 135,000. Combining the savings from CEFACEI and Mother-to-Mother programs, the total savings for the component will be US$7.1 million. This is not only significant savings on public expenditures, but also an efficient way of improving equity in preschool education and alleviating poverty, especially in the rural areas.
Savings from the Lower Secondary Scholarship Program
10. Lower secondary scholarship program and unit costs: This program would sponsor a total of 9600 lower-secondary students from rural areas with low density population. In these areas there are no secondary schools at all because of the scarcity of secondary school-age population. The students from poor family are excluded from secondary school system because their parents cannot afford transportation and other necessary costs for them to travel certain distance to go to nearby lower secondary schools. The rationale of the program is to provide financial support to students from the rural low-income families, thus allowing them to attend lower secondary schools. The amount per scholarship is US$3 15 per year. The total costs for secondary scholarship program would be about US$3 million over the life of the project (see table 6).
11. The other alternative to provide opportunities for rural secondary school-age children to have access to the system is building new schools. However, we have to keep in mind that in rural areas, each town or village has fewer secondary school-age children than in urban areas. 101 ANNEX 13 Economic Benefits
This means that the class size of rural areas is much more smaller than in urban areas. Assumning that each class has 15 students, we would need to build 640 classroom and hire 640 more teachers for approximately 9600 students. The unit cost for construction and equipment per classroom is estimated at US$25,000 and the average teacher's annual salary is US$5,404. The total cost for this option would be on the order of US$19.5 million. Obviously, the cost for building schools is much higher than the cost for scholarships. Of course, the classrooms can be used for many years. Realistically, however, in these rural areas, the utilization of these buildings is extremely low and the cost to run and maintain them would be just as high as the other buildings. Therefore, this is not an efficient way to expand rural lower secondary enrollment.
12. Based on the comparison of the two options, it is clear that the scholarship program has more advantages than the other. The savings from scholarship program would be about US$16 million.
Table 1: Component- Improving Quality and Equity in Basic Education Costs and Beneficiary (USS) Numberof Component Poor Students' Cost Year BasicEd. Quality and Equity Benefitfrom per Capital Costs RecurrentCosts Total the Project Beneficiary
1996 3,970,000 10,000 3,980,000 177,050 22 1997 8,240,000 170,000 8,410,000 177,050 48 1998 8,730,000 180,000 8,910,000 177,050 50 1999 5,910,000 180,000 6,090,000 177,050 34 2000 3,240,000 190,000 3,430,000 177,050 19 2001 190,000 190,000 177,050 1 2002 190,000 190,000 177,050 I 2003 190,000 190,000 177,050 1 2004 190,000 190,000 177,050 1 2005 190,000 190,000 177,050 1 1/ This componentwill target the poorest 190 Corregimientos (37 percentof all the corregimientosin the country), wvhichwill include41 percentof the enrollmentin grades I to 9. Table I: Economic Analysis of the Project Component: Improving Quality of Basic Education Projected Flows of Costs and Benefits from Quality Education Improvement Basic Education- For OneStudent
Full EmpIymientIncome per Yar (Balboas) Unomploy-Income Not of Unempl. IncomeDifferential Project Education costs& Y"r Age Schooling ExperienceExpeile c LowIncome MiddleIncome ment Low, MidhI Balboa I USS Costs Resource Benefits I I I 11 PrimaryEd.ISecond. Ed. PrimaryEd.iSecond Ed. % Income Income I USS Savings ofthsProj
1996 4 1997 5 0 1998 6 1 (22) 15 (6) 1999 7 2 (46) 15 (30) 2000 8 3 (48) 15 (33) 2001 9 4 (33) 15 (18) 2002 10 5 (24) 15 (9) 2003 11 6 -1 15 14 2004 12 7 1 936 1046 98.00% 14 8 -6 (6) -1 21 20 2005 13 8 2 961 1101 98.00% 14 9 -6 (6) -1 21 19 2006 14 9 3 986 1157 73.00% 200 125 -75 (75) (1) 21 (7) 2007 15 10 4 1011 1214 73.00% 205 131 -73 (73) (7) 2008 16 11 5 1035 1273 73.00% 210 137 -72 (72) (7) o 2009 17 12 6 1 1059 1354 1332 1763 73.00% 306 430 124 124 12 2010 18 7 2 1083 1390 1393 1856 27.00% 846 1220 373 373 37 2011 19 8 3 1106 1426 1454 1951 27.00% 866 1279 413 413 41 2012 20 9 4 1129 1461 1515 2048 13.10% 1053 1594 541 541 54 2013 21 10 5 1152 1497 1577 2147 13.10% 1076 1667 592 592 59 2014 22 11 6 1174 1532 1639 2247 13.10% 1098 1741 644 644 64 2015 23 12 7 1195 1566 1701 2349 13.10% 1119 1816 697 697 70 2016 24 13 8 1216 1600 1764 2451 13.10% 1140 1891 751 751 75 2017 25 14 9 1237 1633 1825 2555 8.20% 1226 2078 851 851 85 2018 26 15 10 1256 1666 1887 2660 8.20% 1247 2158 910 910 91 2019 27 16 11 1275 1698 1947 2765 8.20% 1268 2238 970 970 97 2020 28 17 12 1294 1729 2007 2869 8.20% 1287 2318 1030 1,030 103 2021 29 18 13 1311 1759 2066 2974 8.20% 1306 2397 1090 1,090 109 2022 30 19 14 1328 1789 2124 3078 6.00% 1356 2535 1178 1,178 118 2023 31 20 15 1343 1817 2180 3182 6.00% 1374 2614 1240 1,240 124 2024 32 21 16 1358 1845 2234 3284 6.00% 1391 2692 1301 1,301 130 t 2025 33 22 17 1372 1871 2287 3385 6.00% 1407 2769 1362 1,362 136r 2026 34 23 18 1385 1896 2337 3484 6.00% 1422 2844 1422 1,422 142 ° 2027 35 24 19 1397 1920 2386 3581 5.40% 1445 2935 1490 1,490 149 R'
mX Table 1: Economic Analysis of the Project Component: Improving Quality of Basic Education Projected Flows of Costs and Benefits from Quality Education Improvement Basic Education- For One Student
Fu1EmpIrcment perYear (Balboas) Unemploy. Inme N of Unempl. IrcormeDifferential Pred Education Coes Year Age ScIoo-ng Expnce Epenne L Inone du| enoonde mernl Lew Mid Balboa USSU Coct Resource Ben 1 I FJrimaryEd. |Secornd. Ed. I rPsrnrfEd.|Second. Ed. I % Inco ImeMO MS ScAg of ft Prt
2028 36 25 20 1408 1943 2431 3676 5.40% 1459 3007 1548 1,548 155 2029 37 26 21 1418 1965 2475 3768 5.40% 1471 3075 1604 1,604 160 2030 38 27 22 1427 1985 2515 3856 5.40% 1482 3141 1659 1,659 166 2031 39 28 23 1435 2003 2553 3942 5.40% 1492 3203 1712 1,712 171 2032 40 29 24 1441 2021 2588 4023 5.40% 1500 3263 1762 1,762 176 2033 41 30 25 1447 2037 2619 4100 5.40% 1508 3318 1810 1,810 181 2034 42 31 26 1451 2051 2647 4174 5.40% 1515 3371 1856 1,856 186 2035 43 32 27 1454 2064 2672 4242 5.40% 1520 3419 1899 1,899 190 2036 44 33 28 1456 2075 2693 4305 5.40% 1524 3463 1939 1,939 194 2037 45 34 29 1457 2084 2710 4364 5.30% 1528 3506 1978 1,978 198 2038 46 35 30 1457 2092 2724 4417 5.30% 1530 3541 2011 2,011 201 2039 47 36 31 1455 2099 2734 4464 5.30% 1531 3572 2042 2,042 204 2040 48 37 32 1453 2103 2740 4506 5.30% 1530 3598 2068 2,068 207 2041 49 38 33 1449 2106 2742 4541 5.30% 1528 3619 2091 2,091 209 o 2042 50 39 34 1444 2107 2741 4571 5.30% 1525 3635 2111 2,111 211 w 2043 51 40 35 1438 2107 2736 4594 5.30% 1520 3646 2126 2,126 213 2044 52 41 36 1431 2105 2727 4611 5.30% 1515 3653 2138 2,138 214 2045 53 42 37 1423 2101 2714 4621 5.30% 1508 3654 2146 2,146 215 2046 54 43 38 1413 2096 2697 4625 5.30% 1500 3650 2150 2,150 215 2047 55 44 39 1403 2089 2677 4623 4.70% 1500 3664 2163 2,163 216 2048 56 45 40 1391 2080 2653 4614 4.70% 1490 3649 2159 2,159 216 2049 57 46 41 1379 2069 2626 4598 4.70% 1479 3630 2152 2,152 215 2050 58 47 42 1365 2057 2595 4576 4.70% 1466 3606 2140 2,140 214 2051 59 48 43 1351 2044 2561 4548 4.70% 1453 3577 2125 2,125 212 2052 60 49 44 1336 2029 2524 4514 4.70% 1438 3543 2105 2,105 211 2053 61 50 45 1319 2012 2484 4474 4.70% 1423 3505 2083 2,083 208 2054 62 51 46 1302 1994 2442 4428 4.70% 1406 3463 2057 2,057 206 2055 63 52 47 1285 1975 2396 4376 4.70% 1389 3416 2027 2,027 203 2056 64 53 48 1266 1954 2348 4319 4.70% 1370 3365 1995 1,995 199 2057 65 54 49 1247 1932 2298 4257 8.80% 1293 3168 1875 1,875 187
0
For10% of Eamingdifferences: IRR: 19.41
Sources:Osn eimatLonebased on esimated E,dendedrearrng functions. Scenario:Proect induced eamrgs = 10%of eamins diferertials betweenlow Income and middleinncoe profiles;Excluding costs of Assessent Compont e m X
rt . En Li~ 104 ANNEX 13 Economic Benefits
Table 2: Costs and Beneficiaries (USS) Numberof Costs Component PreschoolChildren per Year Expanding CEFACEIPreschool Program Benefitfrom Child Capital Costs Recurrent Costs Total the Program
1996 420,000 250,000 670,000 2,760 243 1997 160,000 520,000 680,000 5,520 123 1998 160,000 790,000 950,000 8,280 115 1999 190,000 1,090,000 1,280,000 11,040 116 2000 200,000 1,490,000 1,690,000 14,740 115 Total 1,130,000 4,140,000 5,270,000 42,340 124 Note: Assuming42,340 children attended.
Table 3: Component - Expanding Non-Formal Preschool (Mother-to-Mother) Program Costs and Bencficiaries (USS) Numberof Costs Component PreschoolChildren per Year Mother-to-MotherPilot Program Benefitfrom Child Capital Costs Recurrent Costs Total the Program
1,996 60,000 30,000 90,000 600 243 1,997 80,000 30,000 110,000 600 243 1,998 30,000 30,000 60,000 600 243 1,999 70,000 30,000 100,000 600 243 2,000 50,000 30,000 80,000 600 243 Total 290,000 150,000 440,000 3,000 243 Note; Assuming3,000 children benefitingftom the program.
Table 4: Savings by Type of Intcrvcntion (USS) Unit Costs Number Savings Relative Programs per Child of to Formal Public per Year Beneficiaries Preschool
Formal PublicPreschool 288 45,340 0 CEFACEIProgram 124 42.340 6,943,760 Mother-to-MotherProgram 243 3,000 135,000 Total Savings 7,078,760 105 ANNEX 13 Economic Benefits
Table 5: Options for Expanding Lower Secondary Enrollment Option A Lower Secondary Scholarships Total Unit Number Costs for Cost of Option A US$ Beneficiaries US$
315 9,600 3,024,000
Option B Construction of New Schools (Classrooms) Unit Costs Average Total Number Student Number of of Number of Annual Costs of per Classrooms Construction Teachers Salary per for Students Classroom Needed & Furniture Needed Teacher Option B USS USS US$
9,600 15 640 25,000 640 5,404 19,458,560 106
ANNEX 14 Project Implementation Schedule Task Name Start Finish 1996 | 1996 J 1997 1998 1999 2000 | 2001 1N296 1N2196 Teacher Training 2t96 5/29/00 IE Pre-primary 2N2/96 1112/99 .g_
Trainadvisors and supervisors 212S5 2117/96
TrainPromotoras 10/2/96 11/12/99
TrainMothers-Leaders 23/397 3/13/00
Primary 5/2/96 5/29/00
Trainthe traininggroup in MuttigradeMethodology 5N/96 5/29/00
Trainteachers in Multigrademethodology 6/4/97 6/23/00
Educational Materials 1/15/96 10/ 2299
Preprinary 1/2196 10/3/00 _
Procurementof educationalmaterials for children 2/3/97 2t29/0O
Packagesof educ. mat. distributed 3/4197 3124/00
Manualsand texts for Promotorasprinted 1/15/96 1/21/99
Manualsand texts for Promotorasdistributed 4122/96 5/8/98
Write terms of referencefor radio programs 212196 128/96
Open biddingfor radio programs 3/4/96 6/4/96
Award biddingfor radio programs 6/5/96 6/5/96
Distributeprograms to radiostations 2/3/97 3/3/97
Radioprograms broadcast 4/3/98 10/3/00.
Primary 1/296 224/00 ____ i
Preparebidding documents 1/15/96 3/15/96
Prepareshort list of publishers 2/15/96 3/15/96
Invitepresentation of unpricedtechnical proposals 3/18/96 3118/96
Studytechnical proposals and proposetechnical o 3/19/96 7119/96
Openbidding for textbooksand classroomslibrari 7/22/96 7/22196
Awardcontracts for textbooksand libraries 10/22196 10/22/96
Textbooksand librariesdistributed to districts 1/22197 1/22/97
Textbooksand librariesdistributed to schools 2/24197 2t287
Createnew sets of activitycards 5/15/96 6/14/96
Printnew sets of activitycards 6/17196 6/17/96
Distributenew sets of activitycards 7/2196 7ns96
Preparebidding documents 1/15/99 3/18/99 lu/
ANNEX 14 Project ImplemfentationSchedule Task Name Start Finish 1996 1996 1997 1998 _ 1999 | 2000 ! 2001 Prepareshort list of publishers 2115/99 3/16/99
Invitepresentation of unpricedtechnical proposals 3117199 3117199 . -
Studytechnical proposals and proposetechnical o 3/18/99 7/20/99
Openbidding for textbooksand classrooms librari 7/21/99 7/21/99
Awardcontracts for textbooksand libraries 10(2299 10122/99
Textbooksand librariesdistributed to districts 1/24/00 1/24/00
Textbooksand librariesdistributed to schools 2124100 3/1/00
Createnew sets of activitycards 5/17/99 6/16/99
Printnew sets of activitycards 6/17/99 6/17/99
Distributesets of ActivityCards 6/4/97 6/23/00 I . I
Distributenew sets of activitycards 7/2/99 7/2/99
EducationalAssessment 7/2/96 3/31/00 _
Produceachievement tests, surveys and technica 3/4/96 3129/00 1 1 |
Pilot achievementtests 712/96 7/3100 . |
Administerachievement tests 10/2/96 10/2/00 .
Issuanceof reports 1/15/97 2/4/00 . Il
Pilotschool readiness test 1012197 10131/97 *
Administrationof tests 4/298 4/3/00
Issuanceof reports 7/2/98 7/21/00 I
Pilotaffective tests 4/2/99 4/30199 I
Administeraffective tests 9/2/99 9/4/00
Issuanceof reports 3/31/00 3/31/00
Scholarships for poor students 5/2/95 11/22/00
Advertiseprogram 5/95 7/24/00
Selectsstudents 8/2196 8117100 * | l
Issuereports on planneddistribution of scholarshi 11/4196 11/22/00 I I I Issuereports on effectiveexecution of the plan 6Q297 6/22/00 I I |
Primary school rehabilitation 9/4195 6/23/00
Planconstruction and repairsfor the followingyear 914/95 99I/95 .
Awardcontracts 2/2/96 4/25/00 l
Monitoring 6/3/96 6/23/00 . I l Selectparticipants for the pilot on communityinvot 1197 11129/99 I 9 iub
ANNEX14 Project Implementation Schedule Task Name Start Finish 1995 1996 1997 1998 1999 2000 2001 Startworks in selectedcommunities 5/2/97 5/18/99 I
Terms of referencefor microplanningstudy 2/2/96 2/2/96
Procuremicroplanning study 314196 6/4/96
Award microplanningstudy 7/2/96 7/2t96
Microplanningstudy completed 7/2/96 7/2197
Expansion of Non-formal pre-primary 1/8/96 10/2/00
Identifygeographical location for CEFACEls 1/8/96 1/21199 . I l
IdentifyParents Associations 219/96 2V9199 : :
Receive ParentsAssociation documentation and i 5/2/96 7123/99 1 Transferfunds to pay Promotoras 1/2197 10/2/000 I I | Initiateservices for children 1/2/98 1/13/00 I I
Institutional Strengthening 6/3/96 10/00 ______.-_-_____ .-. __i .:___-- -
Prepareterms of referencefor studies 6/3/96 9/3/96
Contractstudies 10/3196 10130/96
Seminarfor analysisof findings 1114/97 12/4/97
Policydecisions taken under the recommendation 1/8/98 4/8/98
Prepareterms of referencefor MIS' systems and 2/2196 2/296
ContractMIS systemsand hardware 5/2/96 5/2/96
ReceiveMIS systemsand hardware 9/2/96 9/296:
Planningof training 6/3/96 7/3/96
Providetraining to MOE personnel 10/2196 10/2/00 i. __ _ 109 ANNEX 15 Supervision Plans and Reviews
SUPERVISION PLANS AND REVIEWS
1. The composition and staffing level of the supervision program for each year of project implementation are presented in Table 1. The supervision teams will consist of the Task Manager, EBRDstaff and consultants with expertise in the areas of education (pre- primary, evaluation, teacher training, textbooks), Management Information Systems, education finance and planning, procurement and project implementation. Supervision missions will normally be conducted twice a year, in February and September, beginning in July 1996. All missions will involve discussions with project officials as well as project field visits, on the basis of which the mission will evaluate the project.
2. Project Launch Seminar. A Project Launch Seminar will be conducted around April 1996 to: (a) review implementation of the project's rules and procedures manual, and familiarize the MOE with the project's monitoring procedures and banks guidelines and procedures on procurement, disbursement and auditing requirements; and (b) review the project requirements for progress reports on the implementation of the Annual Work Programs.
3. Annual Review. The purpose of the annual review is to assess project performance against specific output and impact indicators, primarily through the analysis of: (a) the Project Implementation Schedule (Annex 14); (b) the Annual Implementation Plan for the following year; and (c) the Annual Implementation Report of the previous year. Annual Reviews will take place in September of each year.
4. Annual Reviews will be held by September 15 of each year by MOE, MIPPE, FES and IFARHU. In preparation for the Annual Project Review, the PCU Coordinator, in coordination with responsible units, will prepare and present to the Bank, no later than September 1st of each year, the following documents.
(I) compliance with the Project Operations Manual;
(ii) compliance with the covenants of the Bank Loan Agreement;
(iii) information pertaining to all Project Monitoring Indicators (Output and Impact Indicators);
(iv) status of procurement of goods and services;
(v) highlights of findings, lessons learned and problems pertaining to the technical, institutional, administrative or financial implementation of the project.
Project Action Plan for the next calendar year, covering: 110 ANNEX 15 Supervision Plans and Reviews
(I) program of activities for each subcomponent of the project;
(ii) schedule of activities for each subcomponent of the project;
(iii) detailed procurement plan;
(iv) detailed budget by source of funds and uses, for each quarter, specifying counterpart funds;
(v) specific reports when needed.
5. Project Mid-Term Review. This review will be carried out on Sept 1998 jointly by the Government and IiBRD. The focus of the review is to ascertain to what extent the project has achieved its development objectives. The PAU Coordinator will prepare the same reports for the Project Mid-Term Review as for the Annual Project Reviews.
6. Modirications to Project Design and Implementation Plans. During Annual Project Reviews and the Project Mid-Term Review, there is the opportunity to update project targets and discuss changes needed in project design or implementation plans. In this context IBRD may require that the PAU prepare an action plan for the Bank's review and approval within two months following the completion of the Project Review. The PCU Coordinator will be responsible for organizing the Mid-Term Project Review and ensuring that agreed follow-up actions, satisfactory to the Bank, are taken in timely manner. 111 ANNEX 15 Supervision Plans and Reviews
Table 1: Supervision, Project Launch and annual Review Timing Superviion Team Staffing (In weeks) 1996 April TaskManager ProjectLaunch Workshop Pre-primaryspec. Teachertraining multigrade spec. I Textbooksspec. Civil Works spec. 1 MIS Spec. * Educ.Planner spec. Procurementspec. September TaskManager I Annual Review Pre-primaryspec. I Teachertraining multigrade spec. I Textbooksspec. 1 MIS spec. 1 Educ.Planner spec Procurementspec. 1 1997 April TaskManager I Pre-prinmayspec. Teachertraining multigrade spec. Textbooksspec. I Civil Works spec. I MIS spec. I September Task Manager I Annual Review Educ.Planner spec. I Unidentifiedfieid I Unidentifiedfield 1 1998 April Task Manager I Educ.Planner spec. I Unidentifiedfield I Unidentifiedrield I September Task Manager I Mid-TermReview Pre-primaryspec. I Teachertraining multigrade spec. 1 Textbooksspec. I Civil Works spec. I NIS Spec. 1999 April TaskManager Educ.Planner spec. Unidentifiedfield Unidentifiedfield I September TaskManager I Annual Review Educ.Planner spec. Unidentifiedfield Unidentifiedfield 1 2000 April TaskManager I Educ.Planner spec. I Unidentifiedfield Unidentifiedfield Unidentifiedfieid 2001 September TaskManager I Annual Review Pre-primaryspec. Teachertraining multigrade spec. Textbooksspcc. Civil Works spec. MIS spec. I April Task Manager I Final annualReview and Pre-primaryspec. I Completion Teachertraining multigrade spec. Textbooks spec. I Civil Worksspec. I MIS spec. I Educ.Planner spec. I Procurementspec. I 112 ANNEX 16 Documents in Project Files
DOCUMENTS IN PROJECT FILES
Benito, Carlos "EconomicAnalysis of the EducationProject of Panama",Nov. 1995.
ContraloriaGeneral de laRepublica. 1993a. "EstadisticaPanameha, Situaci6n Social, Estadisticasdel Trabajo (Empleo)Aflo 1990." Direcci6nde Estadisticay Censo, Panama,Repiublica de Panama.
ContraloriaGeneral de la Republica. 1993b. "Panamaen Cifras:Adios 1988-1992." Direcci6nde Estadisticay Censo,Panama, Republica de Panama.
ContraloriaGeneral de la Republica. 1993c. "Situaci6nCultural: Educaci6n Ao 1990." Direcci6nde Estadisticay Censo,Panama, Republica de Panama.
ContraloriaGeneral de la Republica. 1993d. "Situaci6nDemografica: Proyecci6n de la Poblaci6nTotal del Pais por Sexo, SegunGrupos de Edad: Ahos 1990-2025." BoletinEspecial. Direcci6nde Estadisticay Censo,Panama, Republica de Panama.
ContraloriaGeneral de la Republica. 1993e. "Situaci6nSocial: Estadisticas del Trabajo (Empleo)Aiio 1990." Direcci6nde Estadisticay Censo, Panama,Republica de Panama.
ContraloriaGeneral de la Repiublica.1994. "IndicadoresSociales, Anos: 1970, 1980, 1983 y 1986-92." Direcci6nde Estadisticay Censo,Panama, Republica de Panama.
Instituto para la Formaci6ny Aprovechamientode RecursosHumanos (IFARHU). 1984. Memoria. PanamaCity, Panama:IFARHU.
Manzur,A. and others. 1993. "Concertaci6nInterinstitucional para el Desarrollode la GerenciaEducativo." Universidadde Panama,UNESCO Proyecto Movilizador, CiudadUniversitaria, Panama.
Ministeriode Educaci6n. n.d.. "InformeFinal del ProyectoMovilizador de Apoyoa AccionesRelevantes de Educaci6npara todos en Panama." Versi6nPreliminar - Borrador. PAN/92/001.Panama.
Ministeriode Educaci6n(MOE). 1985. "SintesisGeneral del Plan de Desarrollo Educativo." Documentode Trabajo. Oficinade Planificaci6nEducativa, Panama, Republicade Panama. 113 ANNEX 16 Documents in Project Files
Ministerio de Educaci6n. 1986. "La Educaci6n Primaria por Corregimiento, AnioEscolar 1985." Oficina de Planificaci6n, Departmento de Estadistica, Ministerio de Educaci6n, Republica de Panama.
Ministerio de Educaci6n. 1987. "Documento Preliminar del Anteproyecto de Ley de Actualizaci6n del Sistema Educativo Nacional." Ministerio de Educaci6n, Panama, Republica de Panama.
Ministerio de Educaci6n. 1991. "Anteproyecto de Ley por el cual se Modifican, Adicionan y Subrogan Articulos de la Ley 47, de 24 Septiembre de 1946, Organica de Educaci6n." Comision Coordinadora de Educaci6n Nacional, Panama, Republica de Panama.
Ministerio de Educaci6n. 1992a. Informe Amlal 1993. PanamA:Ministerio de Educaci6n.
Ministerio de Educaci6n. 1992b. "Proyecto Integral para el Mejoramiento de la Gesti6n Educativa. La Reprobaci6n y Deserci6n Escolar en el Primer Nivel de Ensehianza en Panama en el Quinquenio 1986-1990." Oficina de Planificaci6n, Departmento de Estudios e Investigaciones Educativas, PanamA,Republica de PanamA.
Ministerio de Educaci6n. 1993a. I7forme Anuial 1993. Panama: Ministerio de Educaci6n.
Ministerio de Educaci6n. 1993b. PlaniNaciotial de Desarrollo Educativo: 1994-1998. PanamA:Ministerio de Educaci6n.
Ministerio de Educaci6n. 1993c. "Proyecciones 1993." Direcci6n de Perfeccionamiento al Educador, Panama, Republica de PanamA.
Ministerio de Educaci6n. 1993e. "Situaci6n y Perspectivas de la Educaci6n en las Areas Rurales de PanamA." Oficina Subregional de UNESCOpara Centroamerica, Ministerio de Educaci6n, Republica de Panama.
Ministerio de Planificaci6n y Politica Econ6mica (MIPPE). 1993. "Mapa de la Pobreza." Direcci6n General de Planificaci6n Econ6mica y Social, Divisi6n de Planificaci6n Social, Departamento de Recursos Humanos y Empleos, PanamA,Republica de PanamA.
Ministerio de Trabajo y Bienestar Social. 1984. "Informaci6n Estadistica Sobre Recursos Humanos (Censos, Encuestas de Hogares y Otras Fuentes)." Boletin No. 2. Proyecto 525-0221, Planificaci6n y Generaci6n de Empleo, Sistema de Informaci6n de Recursos Humanos (SIRH), Direcci6n Nacional de Empleo, PanamA. 114 ANNEX 16 Documcnts in Project Files
Pic6n, C. 1993. Concertando el Futuarode la Educaci6n Paniameiia. Panama: Programa de las Naciones Unidas para el Desarrollo and UNESCO.
Programa de las Naciones Unidas para el Desarrollo (PNUD). 1993. "Memoria: Encuentro Nacional Unidad y Desarrollo Humano." PNUD, Bambito, Repuiblica de PanamA.
Proyecto UNESCO-Alemania. 1993. "Reunion Tecnica Subregional Sobre Experiencias Innovadoras de Educaci6n en Las Areas Rurales del Istmo Centroamericano." Informe Tecnico. Proyecto UNESCO-Alemania, 507/RLA/10, Santiago de Veraguas, Rep[blica de Panama.
United Nations Educational, Scientific and Cultural Organization (UTNESCO). 1993a. "Proyecto Apoyo as Sistema de Mejoramiento de la Calidad de la Educaci6n Panamena." UNESCO, New York, New York.
Universidad Santa Maria La Antigua (USMA). 1991. "La USMA en Cifras - 1990." Secretaria General, Universidad Santa Maria La Antigua, PanamA,Republica de PanamA. MAP SECTION
REPUBLICADEL PANAMA DIVISIONPOLITICO - ADMINISTRATIVA:1990
BOCAS DEL TORO 38. Las Huacas 80. Rio Indio BOQUETE RENACIMIENTO 202. Chepigana BOCAS DEL TORO 39. Toza 81. SanJosedelGeneral 117. Boquete(Cabecera) 159. Rio Sereno(Cabecera) 203. Garachind I. Bocasdel Toro (Cabecera) 118. Caldera 160. Breni6n 204. Jaqu6 2. BahiasAzul OLA PORTOBELO 119. Palmira 161. CanasGordas 205. PuertoPina 3. Bastimentos 40. Ola (Cabccera) 82. Portobelo(Cabecera) 162. Monte Lirio 206. Rio Congo 4. Caloveborao SantaCatalina 41. El Cope 83. Cacique BUGABA 163. Plazade Caizan 207. Rio Iglesias 5. PuntaLaurel 42. El Palmar 84. PuertoLindo o Garrote 120. LaConcepci6n(Cabecera) 164. SantaCruz 208. Sambu 6. Tobobe 43. El Picacho 85. Isla Grande 121. Aserriode Gariche 209. Seteganti 44. La Pava 86. Maria Chiquita 122. Bugaba SAN FELIX 210. Taimati CHANGUINOLA 123. Cerro Punta 165. Las Lajas(Cabecera) 211. Tucuti 7. Changuinola(Cabecera) PFNONOME SANTA ISABEL 124. G6mez 166. Cascabel 8. Almirante 45. Penonome(Cabecera) 87. Palenque(Cabecera) 125. La Estrella 167. Hato Corotu PINOGANA 9. Guabito 46. Caunaveral 88. Cuango 126. SanAndrds 168. Hato Culantro 212. El Real (Cabecera) 47. Cocle 89. Miramar 127. SantaMarta 169. Hato obo 213. Bocade Cupe CHIRIQUI GRANDE 48. Chiguiri Arriba 90. Nombrede Dios 128. SantaRosa 170. Hatoluli 214. Paya 10. ChiriquiGrande(Cabecera) 49. El Coco 91. Palmira 129. SantoDomingo 171. Hato Pil6n 215. Pinogana 11. Canquintui 50. Pajonal 92. PlayaChiquita 130. Sortova 172. Iuay 216. Pucuro 12. Guoroni 51. Rio Grande 93. SantaIsabel 131. Volcan 173. QuebradadeLoro 217. Yape 13. Mununi 52. Rio Indio 94. Viento Frio 174. SaltoDupi 218. Yaviza 14. PiedraRoja 53. ToabrW DAVID 175. SanFdlix 15. PuntaRohalo 54. Tulu COMARCA DE 132. David (Cabecera) CEMACO 133. Bijagual SAN LORENZO 219. Cirilo Guaynora SANBLAS 134. Cochea 176. Horconcitos(Cabecera) 220. Lajas Blancas COCLE COLON 95. Ailigandi 135. Chiriqui 177. Bocachica 221. ManuelOrtega AGUADULCE COLON 96. Narganl 136. Guaca 178. Bocade Balsa 16. Aguadulce(Cabecera) 55. Barrio Norte 97. PuertoObaldia 137. Las Lomas 179. Bocadel Monte SAMBU 17. El Cristo 56. Barrio Sur 98. Tubuala 138. Pedregal 180. Camar6nArriba 222. Jingurud6 18. El Roble 57. BuenaVista 139.San Carlos 181. Cerro Banco 223. Rio Sabalo 19. Pocri 58. Cativ5 140. SanPablo Nuevo 182. Cerrode Patena 59. Cincito CHIRIQUI 141. SanPablo Viejo 183. Emplanadade Chorcha ANTON 60. Crist6bal AIANJE 184. SanJuan HERRERA 20. Ant6n (Cabecera) 61. Escobal 99. Alanje (Cabecera) DOLEGA 185. SanLorenzo CHITRE 21. Cabuya 62. Lim6n 100. Divala 142. Dolega(Cabecera) 186. Soloy 224. Chitre (Cabecera) 22. El Chiru 63. NuevaProvidencia 101. El Tejar 143. DosRios 225. LaArena 23. El Retiro 64. PuertoPil6n 102. Guarumal 144. Los Anastacios TOLE 226. Monagrillo 24. El Valle 65. Sabanitas 103. PaloGrande 145. Potrenillos 187. Tole (Cabecera) 25. JuanDiaz 66. Salamanca 104. Quer6valo 146. PotrenillosAbajo 188. Alto Caballero LAS MINAS 26. Rio Hato 67. SanJuan 105. SantoTomas 147. Rovira 189. Cerro Cana 227. Las Minas 27. SanJuan de Dios 68. SantaRosa 148. Tinajas 190. Cerro Iglesias 228. Chepo 28. SantaRita BARU 191. CerroPuerco 229. Chumical CHAGRES 106. PuertoArmuelles (Cabecera) GUAIACA 192. CerroViejo 230. El Toro LA PINTADA 69. NuevoChagres(Cabecera) 107. Limones 149. Gualaca(Cabecera) 193. Chichica 231. Leones 29. La Pintada(Cabecera) 70. Achiote 108. Progreso 150. Homito 194. LajasdeTole 232. Quebradadel Rosario 30. El Harino 71. El Guabo 151. Los Angeles 195. Maraca 31. El Potrero 72. La Encantada BOQUERON 152. Pajade Sombrero 196. PefraBlanca LOSPOZOS 32. Llano Grande 73. PalmasBellas 109. Boquer6n(Cabecera) 153. Rinc6n 197. Potrerode Cana 233. Los Pozos(Cabecera) 33. PiedrasGordas 74. Pinia 110. Bagala 198. Quebradade Piedra 234. El Capuri 75. Salud 111. Cordillera REMEDIOS 199. Sitio Prado 235. El Calabacito NATA 112. Guabal 154. Remedios(Cabecera) 236. El Cedro 34. Natfi(Cabecera) DONOSO 113. Guayabal 155. Cerro Iglesias 237. La Arena 35. Capellania 76. Miguel de la Borda(Cab.) 114. Paraiso 156. El Nancito DARIEN 238. LaPitaloza 36. El Cao 77. Cocl] del Norte 115. Pedregal 157. Hato Chami CHEPIGANA 239. Los Cerritos 37. Guzmgn 78. El Guasimo 116. Tijeras 158. Lajero 200. La Palma(Cabecera) 240. Los Cerrosde Paja 79. Gobea 201. Camoganti
Referencefor IBRDMap 27496 OCU 285. Las TablasAhap( 332. El Cacao CHIMAN SAN MIGUERUTO 469. PuertoVidal 241. Oci3(Cabecera) 286. Nuario 333. El Corlez.o 378. Chimhin(Cabecera) 427. AmieliaDenis de Icaza 470. Zapotillo 242. Cerro Largo 287. Palmira 334. Flores 379. Brujas 428. BelisarioPorras 243. Los Llanos 288. Pe6aBianca 335. Gufinico 380. GonzaloVgsquez 429. Jos6Domingo Espinar MONVTIJO 244. Llano Grande 289. Rio Hondo 336. La Tronosa 430. MateoIturralde 471. Montijo (Cabecera) 245. PefiasChatas 290. SanJos6 LA CHORRERA 43l1.Victoriano Lorenzo 472. Arenas 291. SanMiguel PAA A381. Barrio Balboa 473. Gobernadora PARITA 292. Santo Domingo PAA A382. Bafrio Col6n TABOGA 474. La Garceana 246. Parita(Cabecera) 293. Sesteadero ARRAIJAN 383. Amador 432. Taboga(Cabecera) 475. [eones 247. Cabuya 294. Valle Rico 337. Arraijin (Cabecera) 384. Arosemena 433. OtoqueOccidente 476. Llano de Catival 248. Los Castillos 295. Vallerriquito 338. JuanD. Arosemena 385. El Arado 434. OtoqueOriente 477. Pil6n 249. Llano de Is Cruz 339. NuevoEmperador 386. El Coco 478. Quebro 250. Paris LOS SANTOS 340. SantaClara 387. Feuillet 49 eaiMrao 251. Portobelillo 296. Los Santos(Cabecera) 341. Veracrulz 388. Guadalupe VERAGUAS 49 eai Mrao 252. Potuga 297. El Guasinmo 342. VistaAlegre 389 Herrera ATALAYA RIO DE JESUS 298. La Colorada 390. Hurtado 435. Atalaya(Cabeera) 480. Rfo dIeJestis (Cabecera) PESE 299. La Espigadilla BALBOA 391. Iturralde 436. El Barrio 481. Las Huawas 253. Pesc4(Cabecera) 300. Las Cn,ces 343. SanMiguel (Cabecera) 392. La Repres 437. La Montalluela 482. Los Castillos 254. LasCabras (Este) 301. Las Guabaa 344 La Enend 393. Los Diaz 483. Utira 255. El Pajajo(Norte No. 1) 302. Los Angeles 345. La Esnieralda 394. Mendoxa CALOBRE 256. El Barrero (NorteNo. 2) 303. Los Olivos 346. La Guinea 395. Obaldia 438. Calobre(Cabecesa) SAN FRANCISCO '257. El Pedregoso(Oeste No. I) 304. Llano Largo 347. PedroGonzAlez 396. Plays[conta 439. Barnizal 484. SanFrancisco (Cabecers) 258. El Ciruelo (OesteNo. 2) 305. SabanaGrande 348. Saboga 397. PucrtoCaimilo 440. Chitra 485. Corral Falsoo Pana,nws 259. SabanaGJrande (Sur No. 1) 306. SantaAna 398. SantaRita 441. El Cocla 486. Los Hatillos 260. Rinc6n Hondo(Sur No. 2) 307. Tres Quebradas CAPIRA 442. El Potirm 487. Remarnce 349. Capira(Cabecera) PANAMA 443. La Laguna 488. SanJuan SANTAMARIA MACARACAS 350. Caimito 399. SanFelipe 444. La Riy& 261. SantaMaria (Cabecera) 308. Macaracas(Cabeccra) 351. Campana 400. El Chorrillo 445. la Tetilla SANTAFE 262. Chupampa 309. Bahia Honda 352. Cermetmo 401. SantaAna 446. La Ycgttada 489. SantaFt (Cabecera) 263. El Rinc6n 310. Bajosde Goera 353. Ciri de los Sotos 402. LAExposici6n o Calidonia 447. Las Gulas 490. Calov&bora 311I.Corozal 354. Ciri Grandte 403. Curundti 448. Moisjaras 491. El Alto 312. ChupA 355. El Cacao 404. Betania 449. SanJo 492. El Cuay LOS SANTOS 313. El Cedro 356. La Trinidad 405. Bella Vista 493. El Pantano GUARARE 314. EspinoAmarillo 357. Las OllasAmfba 406. PuebloNuevo CAEAZAS 494. Galucito 264. Guarant(Cabecera) 315. La Mes-a 358. Lidice 407. SanFrancisco 450. Cajiazas(Cabecera) 265. El Espinal 316. Las Palmas 359. Villa Carmen 408. ParqueL.efevre 451. Agua de Salud SANITiAGO 266. El Macano 317. Llano de Piedra 360. Villa Rosario 409. Rio Abajo 452. Cerrode Plata 495. Santiago(Cabecera) 267. Guarar6Arriba 31I8. Mogoll6n 410. JuanDiaz 453. Los Valle 496. Cantodel Llano 268. La Enea CHAME 411. Pedregal 454. SanMareclo 497. La Colorada 269. La Pasera PEDASI 361. Chame(Cabecera) 412. Anc6n 498. La Pefha 270. Las Trancas 319. Pedasi(Cabecera) 362. Bejuco 413. Chilibre LA MESA 499. La Rayade SantaMaria 271. LlanoAbajo 320. Los Asientos 363. BuenosAires 414. Las Cumbres 455. La Mesa(Cabecera) 500. Ponuga 321. Mariah6 364. Cabuya 415. Pacora 456. Bisvalles Sal1.San Pedro del Espino LAS TABLAS 322. Purio 365. ChicA 416. SanMartin 457. Bor6 272. LasTablas (Cabecera) 366. El Libano 417. Tocumen 458. LlanoGrande SONA 273. BajoCorral POCRI 367. Las Lajas 459. SanBartolo 502. Song(Cabecera) 274. Bayano 323. Pocri(Cabecera) 368. NuevaGorgona SAN CARLOS 503. Bahia Honda 275. El Carate 324. El Cattaflstulo 169. funta Chame 418. SanCarlos (Cabecera) LAS PALMAS 504. Calidonia 276. El Cocal 325. Lajamina 170. Sajalices 419. El Espino 460. Las Palmias(Cabecera) SOS.Cativd 277. El Manantial326. Paraiso 371, Sorb 420. El Hligo 461. Cerrode Casa 506. El Marahion 278. El Mui'toz 327. Paritilla 421. Guayabito 42 ooa 0.Gaua 279. El Pedregoso C11IE:I, 422. La Et-mita 463. El Maria 508. La Soledad 280. La Laja TONOSI 172.Chcpo (Cabecera) 423. La Laguna 464. El Piro 509. Quebradade Oro 281. La Miel 328. Tonosi(Cabeera) 171. Cafiita 424. Las Uvas 465. El Prado SIO. Rio Grande 282. La Palma 329. Altos de Gt3era 174 Chepillo 425. Los Llanitos 466. El Rinc6n SI I. RodeoViejo 283. La Tiz.a 330. Cahas 175 Fl t.lano 426. SanJos6 467. Lola 284. Las Palmitas 331. El lItbedero 376. Las Margaritas 48 rxa 177. SantaCruz de Chinina Referencefor IBRDMap 27496 IBRD27496 78'- 83- 82' 8B8579
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