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FOR OFFMCIAL USE ONLY

Report No. 13145

PROJECT COMPLETION REPORT

MALAYSIA

FIRST AND SECOND PRIMARYAND SECONDARY EDUCATION SECTOR PROJECTS

(LOANS 2685-MA AND 2987-MA)

.JUNE 14, 1994

Population and Human Resources DivisionCountry Department IEast Asia and Pacific Regional Office

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

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CURRENCY EOUIVALENTS(as of December 1992)

Currency Unit - Malaysian Ringgit (M$)US$1 - M$2.51M$1 - US$0.398

Average Annual Exchange Rates to US$1.00

1985 1986 1987 1988 1989 1990 1991 1922

M$ 2.48 2.58 2.52 2.62 2.71 2.71 2.75 2.58

FISCAL YEAR/SCHOOL YEAR

January 1 - December 31

ACRONYMS AND ABBREVIATIONS

CDC - Curriculum Development CenterDEO - District Education OfficeDERC - District Education Resource Center

(renamed Teachers' Activity Center)DSD - Development and Supplies Division (MOE)EPRD - Educational Planning and Research Division (MOE)EPU - Economic Planning Unit (Prime Minister's Department)ETD - Educational Technology DivisionGOM - Government of MalaysiaIAB - Institute Aminuddin Baki (MOE)KBSM - Kurikulum Bersepadu Sekolah Menengah

(Integrated Secondary School Curriculum)KBSR - Kurikulum Baru Sekolah Rendah

(New Primary School Curriculum)MOE - Ministry of EducationMOLM - Ministry of Labor and ManpowerPGDE - Post Graduate Diploma in EducationPIU - Project Implementation UnitPSESP - Primary and Secondary Education Sector ProjectPWD - Public Works DepartmentRC - Resource CenterSAR - Staff Appraisal ReportSED - State Education DepartmentSERC - State Education Resource CenterSPM - Sijil Pelajaran Malaysia (Upper Secondary

School Certificate)SRP - Sijil Rendah Pelajaran (Lower Secondary School Certificate)TED - Teacher Education DivisionTTC - Teacher Training CollegeUPSR - Ujian Pencapaian Sekolah Rendah (Primary School

Achievement Test)USM - Universiti Sains Malaysia (University of Science)

FOR OFFICuL USE ONLYTHE WORLD BANK

Washington, D.C. 20433U.S.A.

Office of Director-GeneralOperatlons Evaluation

June 14, 1994

MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT

SUBJECT: Project Completion Report on MalaysiaFirst and Second Primary and SecondaryEducation Sector Projects (Loans 2685-MA and 2987-MA)

Attached is the Project Completion Report on Malaysia--First and SecondPrimary and Secondary Education Sector Projects (Loans 2685-MA and 2987-MA)prepared by the East Asia and Pacific Regional Office. It constitutes a satisfactoryaccount of project performance. Part II was prepared by the Borrower. While it is inbroad agreement with the Bank's findings, it provides useful clarification and highlights theimportance of Bank staff understanding the country context.

These two projects constituted the first investment slices of the Govern-ment's 10-year general education development program (1980-85). Their objectives werequality improvements in primary and secondary education, better sectoral management,and a more even regional spread of educational resources. While the first Loan wasclosed with an 18-month delay, with 14 percent of the funds cancelled, the second wasdisbursed on time and fully.

T'he outcomes of both projects are rated as satisfactory: the operationsexceeded their quantitative targets and met most of their quality improvement objectives.Institutional development was substantial, despite occasional shortfalls. The sustainabilityof project benefits appears likely because of their modest impact on the budget.

Covenant compliance was broadly satisfactory, with some instructiveexceptions: belated submission of annual audit reports, failure to reduce primary classsizes and continued operation of numerous small, uneconomical schools.

No audit is planned.

Attachment

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

FOR OFFICIAL USE ONLY


MALAYSIA

FIRST AND SECOND PRIMARY AND SECONDARY EDUCATION SECTOR PROJECTS(LOANS 2685-MA AND 2987-MA)

TABLE OF CONTENTS

Page No.

PREFACE

EVALUATION SUMMARY .................................................... i

PART I. PROJECT REVIEW FROM THE BANK'S PERSPECTIVE

Project Identity .......................................... 1Project Background ........................................ 1Project Objectives ........................................ 2Project Components ........................................ 2Project Design and Organization ........................... 3Project Implementation .................................... 4Major Results and Benefits of the Projects ................ 8Project Sustainability .................................... 14Bank's Performance ........................................ 15Borrower's Performance .................................... 16Findings and Lessons Learned .............................. 17Project Relationship ...................................... 19Consulting Services ....................................... 19Project Documentation and Data ............................ 20

PART II. PROJECT REVIEW FROM THE BORROWER'S PERSPECTIVE

Adequacy and Accuracy of Factual Information in Part III.. 21Government's Comments on the Projects ..................... 21Evaluation of Bank's Performance .......................... 22Evaluation of the Borrower's Performance .................. 22Major Lessons Learned ..................................... 22Relationship with the Bank ................................ 23

This document has a rsicted distribution and may be used by recipients only in the performance of their|official duties. Its contents may not otherwise be disclosed without World Bank authorization.l

TABLE OF CONTENTS (cont.)

Page No.

PART III. STATISTICAL INFORMATION

3.1 Related Bank Loans .. 243.2A Project Timetable (Loan 2685-MA) . . 273.2B Project Timetable (Loan 2987-MA) . . 283.3A Estimated and Actual Disbursements (Loan 2685-MA).. 293.3B Estimated and Actual Disbursements (Loan 2987-MA).. 313.4A Project Implementation (Loan 2685-MA) . . 333.4B Project Implementation (Loan 2987-MA) . . 373.5A Project Costs (Loan 2685-MA) . . 393.5B Project Costs (Loan 2987-MA) . . 403.6A Project Financing (Loan 2685-MA) . . 413.6B Project Financing (Loan 2987-MA) . . 423.7 Project Results

A. Benefits (Loans 2985-MA and 2987-MA) ........... 43B. National Examination Results ................... 51C. Studies (Loan 2985-MA) ......................... 52

3.8A Compliance with Loan Covenants (Loan 2685-MA) ...... 553.8B Compliance with Loan Covenants (Loan 2987-MA) ...... 583.9A Bank Missions (Loan 2685-MA) . . 613.9B Bank Missions (Loan 2987-MA) . . 643.10A Bank Staff Inputs (Loan 2685-MA) . . 663.10B Bank Staff Inputs (Loan 2987-MA) . . 66

fAVPS - IBRD Nos. A 19300R - A 1931n7 - A 19305R - A 19315R


MALAYSIA


PREFACE

This Project Completion Report (PCR) relates to the First and Second

Primary and Secondary Education Sector Projects in Malaysia, for which Loans

2685-MA and 2987-MA in the amounts of US$127.0 million and US$58.8 millionwere approved on April 29, 1986 and August 2, 1988, respectively. Loan

2685-MA was closed on December 31,1992, 18 months behind schedule. At theGovernment's request, US$15.3 million had been cancelled on June 23, 1992.The final disbursement was made on April 15, 1993, and US$2.5 million ofundisbursed funds was cancelled on September 29, 1993, the date on which the

recovery of the Special Account and the refund of the remaining balance wasmade. Loan 2987-MA was closed on schedule on December 31, 1992 and was fullydisbursed. The final disbursement was made on March 12, 1993.

The PCR assesses the degree of success in implementing not only the

project components but also the sectoral policy and strategies whichconstituted the agreed justification of both Projects.

The PCR was jointly prepared by the Population and Human Resources

Division, Country Department I, East Asia and Pacific Regional Office(Preface, Evaluation Summary, and Parts I and III) and the Borrower (Part II).

The Borrower's comments on the Bank's perspective were taken intoconsideration in preparing the final version of Part I.

The PCR is based, inter alia, on the Staff Appraisal Reports, theDevelopment Loan Agreements and other legal documents, supervision reports,progress reports of the Borrower, project files of the Bank and the Borrower,interviews with Bank staff and discussions with Government officials duringthe Project Completion Missions which visited Malaysia in September 1992 andMay 1993.

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MALAYSIA


EVALUATION SUMMARY

Obiectives

i. The First and Second Primary and Secondary Education Sector Projects(PSESPs) were the continuation of a chain of seven education projects, startedin 1969, which had established a strong institutional base for sectordevelopment (para. 1.8). They constituted the first investment slices ofthe Government's 10-year general education development program (1986-95),considered as an integral part of the wider national socio-economic policy(para. 1.1). It was the first attempt at adopting a sectoral approachtackling education and training issues in a comprehensive manner. Whiledirect preparation for employment was to be provided through specificindustrial training with closer links to the profession, general educationwas to produce trainable graduates with higher mental skills, as required bymodern economy. In this context, the objectives of the Projects were to:(a) improve the quality of general education, through improvement of teachertraining, and provision of educational resource facilities and staff quartersto help recruit and retain qualified teachers in hardship areas; (b) increasethe efficiency of educational management to ensure the feasibility andsustainability of sectoral development, through staff development, researchand evaluation; and (c) expand access to better education to achieve thehighest level of equity in the distribution of educational resources,through provision of primary and secondary schools, with priority given tounderprivileged areas, and boarding facilities for students who otherwisecould not benefit from secondary schooling (paras. 1.4 to 1.6).

Implementation Experience

ii. The major variances between planned and actual implementationaffected:

(a) the scale of the following components: (1) under the First PSESP,the school construction program was increased by 40%; the equippingof rural primary schools was reduced by over 20%; and the provisionof Tamil and Chinese school library books was reduced to a relativelysmall proportion, as compared with Indian and Chinese enrollments,due to the limited availability and suitability of such books on themarket; and (2) the training programs for key educators and managersunder both Projects were increased from 8,000 to 18,500 participants(para. 1.9).

(b) the First PSESP costs: these costs were overestimated at appraisal,at a time when it was impossible to predict the steep recession intowhich the economy was to slip, resulting in low construction prices,and the favorable currency exchange rates in the mid-1980's. This

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resulted in about 15% cost underrun and the cancellation of US$17.8million from the Loan (para. 1.10).

(c) the implementation period of both Projects: The First PSESP wascompleted two and a half years behind schedule and closed 18 monthsbehind schedule. The Second PSESP, which benefited from the,experience of the First PSESP, was virtually completed one yearbehind schedule and closed on schedule (para. 1.11).

iii. The scope and scale of both Projects combined were appropriate,and the longer duration of project implementation was the result of:

(a) a combination of local conditions, difficult to forecast withprecision, which mostly affected the First PSESP, such ascontractors' default due to cash-flow problems; staffing constraintsand insufficient initial coordination between or within someGovernment agencies; shortage of available sites; and the need forrevision of equipment lists due to adjustments brought to the newcurricula; and

(b) the phased implementation of additional programs, as the Projectsprogressed, to make full use of undisbursed funds. This enabledthe Government to build substantially more schools and train a largernumber of key staff, without any risk of duplication, as originalProject targets were below the needs of the sector (para. 1.12).

Results

iv. The Projects exceeded their physical implementation targets and metmost of their qualitative input objectives. To improve the quality ofeducation (para. 1.15), the Projects provided three Teacher Training Colleges(TTCs) with a total of 3,500 new places. Educational resources needed toimplement the new curricula were provided to 4,200 underprivileged ruralprimary schools, 365 District Education Resource Centers (later renamedTeachers' Activity Centers) and the four State Education Resource Centers.However, the application of the Ministry of Education's (MOE) regulationto equip only fully assisted schools- resulted in 1,200 non-fully assistedrural schools2 not being equipped under the Projects. A total of 11.8million library books were provided to 7,000 schools, TTCs and ResourceCenters. Both Projects also provided about 1,400 staff quarters toaccommodate 4,500 qualified teachers mostly in hardship areas. At the sametime, MOE implemented new primary and secondary school curricula; producedrelated textbooks and teacher's guides; and introduced a new testing system,as planned. Teacher-class ratios were raised to the levels prescribed in MOEregulations to provide teachers with sufficient time to discharge their newassignments. Secondary schools were provided with special function teachers

Fully assisted schools are schools that are established and fullymaintained by the Government.

2/ Non-fully assisted schools are schools that receive full operating grantsand partial capital grants from the Government but whose land and buildingsare owned and maintained by a private board.

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to take care of students in areas outside academic teaching. Academicstandards in secondary education were raised by increasing the number ofuniversity graduate teachers in secondary schools. Teacher trainers'qualifications were upgraded. However, difficulties are still experiencedin implementing the new pedagogical approaches, and concerns remain withregard to persisting urban/rural gaps in students' achievements, and somedisappointing, or even deteriorating, primary education achievement testscores. Moreover, over 20% of candidates failed the lower secondaryexamination in 1992. This situation probably results from insufficientremedial instruction for low achievers, overcrowding of facilities and doubleshifting, discrepancies between the informal concepts of the curricula and thestill prevailing formal school culture, and subsequent teachers' difficultiesin teaching the new curricula.

v. To increase the efficiency of educational management (paras. 1.16and 1.17), about 18,500 key educators and managers benefited from Projectstaff development programs. However, the training provided by localuniversities did not meet all specific Project objectives. It is felt thatoverall the program was instrumental in sensitizing key staff to majorsectoral issues, and preparing them for designing and implementing necessarychanges to the extent the current centralized, directive management systemwill allow. The impact of the managerial and leadership orientation of theprograms has not yet been felt and it is proposed to evaluate this impactthrough a collaborative team including MOE officers and external specialists,to be identified by the MOE. Monitoring and evaluation of sectoraldevelopment, and the Project Implementation Unit's capacity and procedureswere noticeably improved. Nine studies were carried out to refine theanalysis of major issues affecting quality, cost efficiency and equity ineducation. The findings of the studies were utilized by MOE to plan itsactivities, while universities used them in their research programs. However,the studies did not strengthen national research capabilities as substantiallyas expected. The originally planned efficiency measures (e.g., consolidationof underenrolled schools, expansion of multigrade teaching, and reduction ofclassroom areas for small classes) could not be successfully implemented.This, compounding the Government's school staffing policy and low student-teacher ratios, remains the prime cause of the high and increasing share ofeducation in the national recurrent budget and GNP, which overtime mayjeopardize the smooth and balanced development of the sector. TheGovernment's opinion is that the above efficiency measures are eitherdifficult to implement in the socio-political context of Malaysia or could bedetrimental to the quality of education. However, the MOE is taking measures,such as alternate-year students' intake, to increase class sizes in smallschools and thereby make these schools more efficient.

vi. To expand access to better education (para. 1.18), the most criticalclassroom shortages were alleviated, and progress was made in improving equityin the geographic distribution of facilities. The 5,141 classrooms in 571primary schools, built under both Projects, benefited 240,000 students,i.e., 9% of total primary enrollments, and contributed to maintaininguniversal primary education. The 3,887 classrooms in 256 secondary schoolsaccommodated 210,000 students, i.e., 15% of secondary education enrollments.This assisted the Government in its drive towards achieving universal lowersecondary education and raising the overall secondary enrollment ratio.Boarding facilities were provided to 8,700 students who otherwise would have

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been beyond reach of secondary education. However, despite these efforts,the shortage of school facilities remains acute, overcrowding stilldetrimentally affects the quality of education, and double shifting stillrestricts instruction time and generates commuting hardships.

Sustainability

vii. The Projects per se are viable and sustainable: both Projectsprovided a total of 361,000 places accommodating about 450,000 students,i.e., 11% of the 4,066,000 primary and secondary enrollments. Project-financed boarding and staff housing facilities accommodated 6% of allsecondary boarders and 3.5% of all primary teachers. Therefore, within thewhole education sector, the Projects generated relatively limited incrementalrecurrent expenditures. In addition, the strong institutional foundationwithin the MOE ensures that it has the functional tools required to managethe sector adequately (para. 1.19).

viii. There is, however, a sustainability issue in relation to thesector at large: the share of education recurrent expenditures has reachedhistorically high levels as a result of the high student unit costs generatedmostly by staffing norms. High unit investment costs also originate fromcurrent space and construction norms and practices. The above levels ofexpenditures cannot continue to increase without question, as Governmentrevenue may be slowing down, and competing claims on education allocationsare growing, particularly for higher education (para. 1.20).

Maior Findings and Lessons Learned

ix. Detailed project preparation, and initial agreement on clearpolicies, plans of action and performance indicators are essential forsmoothly monitoring progress in implementing the diverse contents of sectoralprojects (para. 1.8).

x. Major problems still affecting a preceding project should be fullyresolved before project components are replicated or expanded under a repeaterproject. However, considerable practical guidance derived from the experienceof the First PSESP helped to alleviate the difficulties of the Second PSESP(para. 1.8).

xi. The strategy to implement the Projects under the highest MOEauthorities in collaboration with the central planning and financing agenciesensured that the policy changes, which were the prime justification of theProjects, were universally supported at the highest Government level; MOE'simplementation capacity was maximized by constant positive interaction amongall agencies; management structures and procedures were improved under thepressure of Project requirements and all Government agencies' commitment toprogress in implementation and disbursement (para. 1.26b).

xii. Greater attention should have been paid to general factors which boredirectly on project implementation, such as sectoral legislation on resourceallocation and the exceptional sensitivity of certain policies and sub-sectors(para. 1.26c).

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xiii. Whenever sectoral development at large constitutes the basicjustification of a project, the partnership between the Government and theBank should allow an open, constructive discussion of information on allrelevant activities, even though the Bank does not finance some of them(para. 1.26g).

xiv. Centralized authority finds an increasing difficulty in controllingall sectoral activities and responding to the growing diversity of educationalneeds. Greater flexibility and efficiency would probably result from greaterautonomy and accountability brought about by adequate decentralization andempowerment of local authorities down to school level (para. 1.26h).


MALAYSIA


PART I. PROJECT REVIEW FROM THE BANK'S PERSPECTIVE

Proiect Identity

Project Names: Primary and Secondary Education Sector Project(Eighth Education Loan)

Second Primary and Secondary Education Sector Project(Tenth Education Loan)

Loan Numbers: 2685-MA2987-MA

RVP Unit: East Asia and the Pacific Region, Country Department ICountry: MalaysiaSector: EducationSubsector: Primary and Secondary Education

Proiect Background

1.1 Policy Context. The New Economic Policy articulated in 1971 setforth the development goals for the next twenty years as being acceleratedgrowth, eradication of poverty and restructuring of society so as to eliminateregional inequalities and the connection between ethnic groups and economicfunctions. This policy of growth with equity largely achieved its objectivesthrough growth in GNP, which averaged 7% per annum over the 1970-1990 period;employment, which grew by over 3% annually; and reduction of poverty incidencewhich declined from 49% of households to 17%. This was combined with socialprograms to promote national identity and integration. Education played acrucial role in this process and was always considered an integral part of thewider national socio-economic policy. It was also recognized that expandingand diversifying the manufacturing and services sectors towards hightechnology could not be achieved if the education and training system couldnot deliver the quantity and quality of manpower required.

1.2 Linkages between the Proiects and the Sector Policy. The twoprojects constituted the continuation of a chain of seven education projects,started in 1969 (Table 3.1), and an attempt at widening the project approachfrom a number of individual institutions to a whole education subsector.In contrast to an earlier emphasis on meeting manpower needs through secondarytechnical and vocational schools and a technical bias in general secondaryeducation, Bank assistance began, with the 1976 Fourth Education Project,to adopt a sectoral approach tackling education and training in a morecomprehensive manner, and to finance direct preparation for employment throughspecific industrial training projects with closer links to the profession.

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While the Sixth and Seventh Education Projects addressed these technicaltraining needs at middle levels, and the Ninth Education Project at theengineering level, the two Primary and Secondary Education Sector Projects(PSESPs) represented overlapping investment slices of the Government's 10-yeargeneral education development program (1986-95). The conceptualization of theFirst PSESP started in 1984 when the Government was reexamining thedevelopment of the education sector within the preparation of the FifthMalaysia Plan (1986-1990).

1.3 Sector Development Strategy. The Government's strategy for thedevelopment of general education was described in a ministerial Letter ofPolicy dated March 5, 1986. The policy focused on improving the quality ofgeneral education and producing trainable graduates with higher mental skills,as required by modern economy; increasing the efficiency of educationalmanagement to ensure the feasibility and sustainability of sectoraldevelopment; and expanding access to better education to achieve the highestlevel of equity in the distribution of educational resources.

Prolect Obiectives

1.4 Improve the Ouality of Education. The First PSESP (Loan 2685-MA)focussed on improving teacher training and providing educational resources toprimary schools and District Education Resource Centers (DERCs), later renamedTeachers' Activity Centers, particularly in underprivileged rural areas, whilethe Second PSESP (Loan 2987-MA) was to provide adequate physical facilitiesfor these DERCs. Both Projects would also provide new school facilities toreduce critical double-shifting and overcrowding, and staff quarters to helprecruit and retain qualified teachers in hardship areas.

1.5 Increase the Efficiency of Educational Management. Both Projectswere to finance staff development programs to fill urgently needed keyeducators' and managers' positions in the Ministry of Education (MOE), the 13State Education Departments (SEDs), the 113 District Education Offices (DEOs)and schools; and help implement such efficiency measures as consolidation ofunderenrolled schools; expansion of multigrade teaching; and development ofmore cost efficient classroom size standards. Loan 2685-MA was also tofinance research and evaluation.

1.6 Expand Access to Better Education. Both projects were to providenew primary and secondary school facilities, with priority given to districtswhere availability of adequate educational opportunities was below thenational average, and to replace critically dilapidated facilities. Boardingfacilities would also be provided, particularly to students who otherwisecould not benefit from secondary schooling.

Proiect Components

1.7 To improve the guality of education, Loan 2685-MA was to provide:(a) three new Teacher Training Colleges (TTC); (b) eight million library booksfor about 6,700 primary schools; and (c) audio-visual materials and equipmentfor 5,400 rural primary schools and 350 DERCs, while Loan 2987-MA wouldprovide physical facilities for 295 DERCs. The two projects were also tofinance 500 and 290 staff quarters to accommodate 1,500 and 1,200 teachers,respectively. To increase managerial efficiencv, the two Projects allowed forthe training of 540 trainers and 7,400 key educators and managers. Loan 2685-

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MA would also finance nine studies on major sectoral issues with a view toimproving the Government's educational planning, monitoring, qualitativeassessment, and policy- and decision-making capabilities, and therebyincreasing efficiency in educational investments. To expand access to bettereducation, Loan 2685-MA would finance construction, equipping and furnishingof about 3,300 classrooms in 330 schools (2,200 in 260 primary schools and1,100 in 70 secondary schools). An additional 4,400 classrooms in 390 schools(2,100 in 240 primary schools and 2,300 in 150 secondary schools) would beprovided under Loan 2987-MA. The two Projects would also provide 24 and 16hostel units to accommodate 4,700 and 2,800 boarders, respectively.

Project Design and Organization

1.8 Institutional Base. The Projects benefited from the experienceacquired through the seven previous projects. A competent and experiencedProject Implementation Unit (PIU) was in operation within the regularstructure of the MOE Development and Supplies Division (DSD), the EducationalPlanning and Research Division (EPRD) was an established and well-developedpolicy-making, data gathering and processing, planning and decision-makingentity in the MOE, the Curriculum Development Center (CDC) was a highlycompetent educational think-tank, and the MOE as a whole was well structuredand experienced in comprehensive sectoral development. This ensured a stronginstitutional base allowing the adoption of a sector investment approach inBank lending, with greater flexibility in the use of funds within each Projectand between both Projects. The modulation of the various project componentsaccording to their individual progress maximized MOE's overall implementationcapacity at all times, even though establishing priorities in the execution ofthe two concurrently running Projects sometimes presented difficulties. Forexample, construction operations under the Second PSESP did not start onschedule because of the emphasis placed by MOE on completing the First PSESPwhich was still affected by implementation difficulties. On the other hand,a clear policy (para. 1.3) and a precise description of project components,procedures, criteria and guidelines for project preparation and implementationavoided imbalances in the distribution of Project funds and benefits, and madeimplementation monitoring easier. The Projects were carefully prepared (para.1.22) in close cooperation between the Government's central planning andfinancial authorities- , the MOE and Bank staff. Within the regularstructure of MOE, under the Educational Planning Committee, the highestpolicy-making and planning body for education, a Project ImplementationCommittee was established, together with its Joint Secretariat, comprisingDSD and EPRD, and Appraisal/Implementation Sub-Committees in charge of therespective Project components.

1.9 Modifications: The following modifications mostly affected the FirstPSESP:

(a) The scale of the school construction program was substantiallyincreased. The program exceeded appraisal targets (para. 1.7) by 40%with a total of 4,626 classrooms built in 441 schools, including 337

The Economic Planning Unit of the Prime Minister's Department (EPU),the highest policy-making and planning authority in the country, whichallocates investment budgets, and the Federal Treasury, which allocatesrecurrent budgets.

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primary schools (3,070 classrooms) and 104 secondary schools (1,556classrooms), 32 boarding units to accommodate 5,900 students andabout 1,100 staff housing units to accommodate 3,300 teachers.

(b) While the original DERC equipment program was expanded, only 4,229rural primary schools were equipped instead of the 5,400 originallyagreed, following /the MOE'S decision in late 1987 that only fullyassisted schools- could be equipped under the Project, accordingto sectoral legislation. The resulting available balance of fundswas used to provide complementary equipment to about 1,700 schoolsand also to DERCs from which non-fully assisted schools (mostlyChinese- and Tamil-medium schools) could benefit.

(c) The MOE also decided to reduce the number of long-term advanceddegree fellowships abroad under Loan 2685-MA in order to increasethe number of short-term fellowships, and advanced degree coursesin local universities, as a more economical approach at a time ofeconomic recession. This resulted in 1,780 key staff being trained,well above the 541 originally planned. While the Bank insisted onnot converting long-term fellowships abroad into too many short-termfellowships, as it increased travel costs substantially, it agreed toconvert 31 out of 41 advanced degree fellowships abroad into 76 localpost-graduate fellowships, provided the contents of local universitycourses, and staff's qualifications and availability of full-timeprograms in the specific fields required, were adequate. As forlocal short-term courses, the number of trainees quadrupled from 400to about 1,600. Under Loan 2987-MA, efficient management resulted inthe outcomes of the program exceeding its original targets (about16,700 beneficiaries, as compared to 7,400 originally planned), dueto the multiplier effect of the outreach programs set up by InstituteAminuddin Baki (IAB), the national institute in charge of trainingkey educators and educational managers.

1.10 Evaluation of Proiect Design. As a whole, the scope and scale ofthe Projects combined were generally appropriate, and the implementation timeextension required was the result of a combination of local conditions,difficult to forecast, which affected the First PSESP. While the assessmentof the Government's implementation capacity was overly cautious, project costsunder Loan 2685-MA were overestimated at appraisal, at a time when it wasimpossible to predict the steep recession into which the economy was to slip,resulting in lower construction market prices than anticipated at appraisal,and the favorable currency exchange rates of the mid-1980's. As a result,not only did the school construction program exceed its targets but US$17.8million was cancelled from the Loan. Project costs and Project financing areshown in Tables 3.5A and 3.5B, and 3.6A and 3.6B, respectively.

Project Implementation

1.11 Critical Variance in Project Implementation. The major variancesbetween planned and actual implementation affected the scale of the FirstPSESP (para. 1.9) and the implementation period of both Projects (Tables 3.4A

2/ For the definition of "fully-assisted" and "non-fully assisted" schools,see footnotes 1/ and 2/, respectively, on page ii.

and 3.4B): the First PSESP was completed two and a half years behind scheduleand closed 18 months behind schedule. The situation greatly improved with theSecond PSESP which was virtually completed one year behind schedule and closedon schedule, due to the considerable practical guidance derived from theexperience of the First PSESP (Tables 3.2A and 3.2B). The major delaysaffected:

(a) the construction of TTCs, the planned completion date of which wasJune 1989. The Batu Pahat TTC could not be completed earlier thanMay 1992, due to the default of the original contractor and the time-consuming rebidding process to avoid the same risk. As for the SriPinang TTC, it was completed only in December 1992, due to the changeof site; the need for the Public Works Department (PWD) to redesignthe TTC for the new site, and site development problems.

(b) The school construction program under Loan 2685-MA was implemented intwo phases: Phase I corresponding to the originally planned program(2,295 classrooms for primary education and 1,022 classrooms forsecondary schools), and Phase II including over 1,300 additionalclassrooms (775 in primary and 534 in secondary schools), financedwith funds undisbursed under Phase I. The first phase was virtuallycompleted on schedule and the second phase was started in October1988 in Peninsular Malaysia, where the program had run more smoothly.Additional schools were included in the East Malaysia program inmid-1989 to give Sabah and Sarawak, where project implementation wasslower, sufficient time to complete the original program. However,on the original June 1991 Closing Date, school construction underPhase I was still incomplete in East Malaysia, and a number of PhaseII schools were still under construction in Peninsular Malaysia aswell as in Sabah and Sarawak. On the December 31, 1992 Closing Date,15 schools under the First PSESP and 28 under the Second PSESP werestill under construction, expected to be completed by the end of1993.

(c) TTC equipment lists under Loan 2685-MA, originally drafted in 1986,had to be revised in mid-1989 to be consistent with the adjustmentsbrought to the new school curricula and related TTC trainingobjectives and programs. The final lists were completed by the MOETeacher Education Division (TED) in mid-1992. As the constructioncompletion dates of the three TTCs were well apart in time and nostorage facilities were available, procurement of equipment wascarried out separately rather than in bulk, as originally planned.

(d) Procurement of library books. resource materials and school equipmentunder Loan 2685-MA was planned to be completed by June 1989. Thebook selection process was more time-consuming than originallyanticipated, as language level and cultural values had to be takeninto consideration, and teachers were brought from rural areas toKuala Lumpur to evaluate the proposed books. In addition, theprocurement of Chinese and Tamil books raised some problems: astheir availability on the local market and their suitability werelimited, few publishers were willing to supply these books atacceptable prices, while imported books were not deemed suitablewithin the context of Malaysian culture and curricula. As a result,the proportion of Tamil and Chinese school library books was less

than 1% and 5%, respectively, of the total amount of books procured.The procurement of books in the Malay Language (the NationalLanguage) was completed in December 1989. Tamil books were deliveredin January 1991, and English and Chinese books in 1992. Theprovision of teaching and audio-visual aids and equipment for schoolsand Resource Centers (RCs) was delayed by a detailed study on themost appropriate contents of the lists, in view of the adjustmentsbrought to the new curricula. It also took some time for the MOE todecide on the use of undisbursed funds which eventually allowedprovision of library books to new schools, and direly neededreference books and complementary equipment to TTCs, the four StateEducation Resource Centers (SERCs) and DERCs. The last contractswere signed in May 1992.

(e) Of the nine studies which were planned to be completed by June 1989,five were actually completed in late 1989, another three in mid-1990and the last one in early 1991. Delays were due to research staff'sexternal commitments and investigation difficulties, as the studiesprogressed. Following the review of the findings of the studies in vFebruary 1991, it was decided that remaining funds would be utilizedto carry out a school mapping exercise in Peninsular Malaysia alongthe same successful lines as in East Malaysia. This exercise wascompleted in June 1992.

(f) While the original staff development program under Loan 2685-MA wasvirtually completed in June 1990, as scheduled, about 1,300additional staff under the extended program (para. 1.9c) completedtheir training in 1991 and 1992. Under Loan 2987- MA, completion of10% of the local training program had to be postponed from December1990 to mid-1991. However, the above delays made it possible toexpand the scale of both programs from 7,800 to about 18,300 keystaff trained locally and from about 160 to over 200 staff trainedabroad.

1.12 Implementation Evaluation. The longer duration of projectimplementation as a whole was the result of the phased implementation ofadditional programs, as the Projects progressed, to make full use ofundisbursed funds, according to the sector approach (Tables 3.3A and 3.3B).There was no risk of duplication in doing so, as original Project targets werebelow the needs of the sector. The major delays originated from: (a)contracting locally during acute economic recession, resulting in strongcompetition and low bidding; cash-flow problems for contractors who could notborrow money or obtain bonds; and critical shortages of qualified labor on anumber of sites. This could not be avoided in view of the many dispersed andsmall school building contracts which could be handled only at the districtlevel; (b) staffing constraints in the federal PWD and the autonomous PWDs inSabah and Sarawak, and their administrative difficulty to hire consultants forsmall contracts, however large the number of these contracts might be; (c)technical and accounting staff constraints in the PIU, in view of the surge ofprocessing and control requirements relating to Bank-financed projects andother externally-financed projects for which the PIU was also responsible;(d) acute shortage of available and suitable sites; non-availability of fundsat the appropriate time for land purchase; and complicated land acquisitionprocedures, compounded in Sabah and Sarawak by native land rights.

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1.13 Proiect Risks. The Staff Appraisal Report (SAR) assessed the

greatest risks as: (a) investment and recurrent budgetary constraints, which

might affect the scale of the construction programs and the staffing required

to reduce the shortage of educational facilities, and implement the ambitious

reform of curricula; and (b) possible teachers' difficulties in carrying out

the additional professional burdens deriving from the new integrated

curricula, active student-centered teaching methods, and co-curricular

activities. Eventually, no financial constraints affected the Projects:

the Government exceeded the planned targets up to its highest physical

implementation capacity, and the number of teachers in the system reached the

planned figures. On the other hand, the second risk was real and difficulties

are still experienced in integrated subject teaching, implementing various

teaching methodologies, and carrying out the tasks required by the new

approach to class management, co-curricular activities and student testing.

However, the SAR did not forecast: (a) the extent of managerial constraints

resulting from shortages of professional staff, complicated administrative

procedures, slow inner working of, and insufficient coordination among, MOE

divisions and other government agencies involved in technical, financial and

auditing operations; (b) the limited capabilities and relevance of local

universities in relation to specific Project requirements; (c) the difficulty

to implement cost-efficiency measures (para. 1.16b); and (d) the ultimate

outcome of the Government's school staffing policy (paras. 1.15f and g) and

resulting low student-teacher ratios (para. 1.20a).

1.14 Government's Actions Taken or not Taken which Affected the Projects:

(a) The application of MOE's regulation to equip only fully assistedschools fesulted in about 1,200 non-fully assisted rural primary

schools- not being equipped under Loan 2685-MA (para. 1.9b).

(b) Inadequate assessment and monitoring of local universities'capabilities and assignments account for the limited usefulness of

some studies (para. 1.17), and the staff development programs not

meeting the specific Project objectives (para. 1.31). However, a

positive outcome was that the staff development exercise strengthened

local post-graduate programs.

(c) The cost-efficiency measures originally envisaged to alleviate the

fiscal burden of the education reform (para. 1.16b) were limited

(e.g., expansion of multigrade teaching, consolidation of

uneconomical underenrolled schools, adoption of alternative classroom

designs for classes below 40 students), or not implemented (e.g.,

adjustment of school staffing norms to increase the student-teacherratios). This remains the prime cause of the high and increasing

share of education in the national recurrent budget and GNP, whichover time may jeopardize the smooth and balanced development of the

sector (para. 1.20).

(d) Project implementation in the later years was improved through the

availability of funds provided by EPU for the systematic acquisition

of sites in advance of future projects; more stringent selection of

3/ For the definition of "fully-assisted" and "non-fully assisted" schools,

see footnotes 1/ and 2/, respectively, on page ii.

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contractors; more flexible payment conditions; rationalization of thecollection and processing of payment vouchers; and appointment ofqualified permanent accounting and technical staff within the PIU.This enabled the PIU to process Project finances more expeditiously,and follow up technical and payment issues in the field moreefficiently. Improvement in PIU's staffing, equipping and procedureswas a major institution building achievement.

Maior Results and Benefits of the Proiects

1.15 The Projects exceeded their physical implementation targets and metmost of their qualitative input targets (Table 3.7A). However, a number ofsectoral policy objectives stipulated in the agreed plans of action andperformance indicators of the Projects could not be reached. With regard toimproving the quality of education, Project achievements were as follows:

(a) The three new TTCs, built under Loan 2685-MA, provided about 3,500new student places, as planned. This contributed to increasing theteacher training capacity to cope with the natural enrollmentincrease, upgrade academically qualified teachers withoutprofessional certification, introduce qualified teachers to the newcurricula and teaching methods, and replace inadequate trainingfacilities. In 1992, there were 23 TTCs in Peninsular Malaysia, fourin Sabah and three in Sarawak. These 30 TTCs have a total capacityof 28,400 places and over 60% of the trainees are boarders. Thiscapacity currently allows an annual output of 10,500 new teachers,as planned, including 8,000 new primary teachers, 1,000 non-graduatelower secondary teachers and 1,500 graduate secondary teachers.TTCs also provide 2,700 annual participants with in-service trainingprograms focusing on the new curricula and teaching methodol}gy.In addition, six universities enroll 6,400 teacher trainees- , withan annual output of about 2,200 graduates over recent years. The MOEfeels that the above outputs may be insufficient to cope with futurepre- and in-service teacher training needs. However, a cautiousapproach is required in view of the declining growth rate in primaryenrollments; the slow growth of lower secondary enrollments in publicschools; and the high recurrent unit costs of education, due to lowstudent-teacher ratios. A reassessment of teacher training needs isunderway.

(b) To provide teachers with the educational resources needed to helpthem implement the new curricula, under Loan 2685-MA, over 4,200underprivileged rural primary schools, 365 DERCs and the four SERCswere equipped. A total of 7,000 schools were provided with 11.8million library books, and reference books were also provided toTTCs, IAB, DERCs and SERCs. The program was successful overall,although the planned books-primary student ratio of 5:1 was notreached, and problems remained with regard to equipping about 1,200non-fully assisted rural primary schools (para. 1.14a) and providingChinese and Tamil library books (para. l.lld). Under Loan 2987-MA,

4/ Including 1,700 first degree holders preparing a Post Graduate Diploma inEducation (PGDE) and 4,700 students preparing a Bachelor of Arts/Sciencewith Education Degree.

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new facilities for 295 DERCs were built, as planned. The utilizationof resource centers, a relatively recent institution in Malaysia, hashad a slow start. However, continued and widely disseminated stafftraining is gradually producing the critical mass of familiarityneeded to make investments on instructional aids and equipment morepedagogically productive in the future.

(c) In order to retain qualified teachers in hardship areas by improvingtheir living conditions, both Projects provided a total of about1,400 staff guarters to accommodate 4,500 staff. In 1992, a total of15,400 staff quarters accommodated 20,000 teachers, including 13,200primary teachers (in 9,800 housing units) and 6,800 secondaryteachers (in 5,600 units). This represented 10% and 9% of allprimary and secondary teaching staff, respectively. However, about9% of Project staff quarters are reported to be currently utilized aslibraries, school RCs and teachers' rooms, as they were unoccupiedbecause of the urbanization process and economic development whichoffered a greater supply and a better choice of housing in someareas.

(d) While the Projects were being implemented, new curricula covering the11 years of primary and secondary education were implemented grade bygrade starting in 1983. They reinforce basic communication andmathematical skills and include integrated environment-focusedgeneral science subjects, and practical living skills (commercialpractice, manipulative skills, family living skills and basicagricultural knowledge), and community-oriented co-curricularactivities. The new primary school curriculum (KBSR) was fullyimplemented in 1989 and the new secondary school curriculum (KBSM)for lower secondary education, including its innovative living skillscomponent, in 1992. The KBSM will be fully implemented in 1993 inupper secondary education, including its humanities, vocational andtechnological, scientific, and religious electives, as planned.Related textbooks and teacher's guides were produced. The Governmentexpanded the textbook loan scheme proportionately to the increase inprimary and secondary school population. Over 90% of this schoolpopulation benefits from the scheme, which provides about eightmillion books annually, at a cost of US$25 million equivalent.School-based assessment and a national primary school achievementtest (UPSR) were introduced. Practical implementation of the newcurricula, and related textbooks and guides were evaluated andrevised on a continuing basis through EPRD, CDC and the FederalInspectorate.

(e) Teacher training curricula and related equipment and materials inTTCs and Faculties of Education were modified to meet therequirements of the new school curricula, with particular regard toimproving resourcefulness, strengthening student-centered classroommanagement, use of educational technology, evaluation skills andteaching techniques for integrated subjects, and multigrade andremedial instruction.

(f) Secondary schools were provided with special function teachers totake care of students in areas outside academic teaching, as planned.In 1992, for 1,395 secondary schools, there was a total of 8,001

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special function teachers (as compared with 5,509 in 1986). The mostnoticeable increases related to guidance and counselling, sports,media, library and students' welfare. Moreover, in 1992, two newacademic special functions were introduced, namely senior subjectteachers (6,997) and senior co-curriculum teachers (378). Thissharply increased the total number of special function teachers to15,375.

(g) The primary teacher-class ratio was raised from 1.2:1 to 1.5:1,as prescribed in the MOE regulations to provide teachers withsufficient time to prepare and discharge their new curricularassignments. However, if special function teachers are taken intoaccount, the ratio reached 1.72:1 in regular schools, and 1.64:1 ifunderenrolled schools (with enrollments below 150 students) are takeninto consideration. These ratios are the major cause of the high andrising education recurrent expenditures (para. 1.20). The ratioscould be improved by reducing the number of special functionteachers, staffing underenrolled schools on the basis of theirenrollments rather than in accordance with the standard staffallocation, and promoting multigrade teaching to obtain cost-efficient class sizes in the 2,500 underenrolled schools. Moreover,to reach the prescribed primary staffing level, a rather highproportion of untrained teachers had to be hired. MOE currentlyestimates that 22,000 primary and 8,000 secondary unqualifiedteachers need to be replaced. In secondary education, the ratio is1.8:1, or 1.9:1 if special function teachers are taken intoconsideration.

(h) Academic standards in secondary education were raised by increasingthe number of university graduate teachers in secondary schools fromabout 18,500 in 1986 to 34,000 in 1992. This increased theirproportion among the secondary school teaching staff from about 32%to 43% (23% and 77% in lower or upper secondary classes,respectively).

(i) Teacher trainers' qualifications were upgraded, as planned. In 1992,out of 2,687 trainers, 2,204 were graduates (i.e., 82%, as comparedwith 63% in 1986) and post-graduates represented 12% of TTC staff,including six PhDs and 326 MA degree holders. The remaining non-graduates were attending specialized in-service courses and 54 ofthem were pursuing first degree and post-graduate programs. Newtrainers are recruited among graduates.

(j) The objective not to exceed 45 students per class in 1990 could notbe reached, although relative progress was made in reducing theproportion of overcrowded classes: in 1992, classes with enrollmentsexceeding 40 represented 29% and 14% of the total number of primaryand secondary classes, respectively, as compared with 33% and 23% in1986. However, overcrowded primary classes increased in absolutenumbers from about 22,400 to 23,200, of which 9,000 exceeded 45students. This reflected a dramatic increase, as compared with 6,000in 1986, and only minor progress as compared with the peak of 9,400in 1989. Moreover, classes of 45+ still represented 11% of allprimary classes and the proportion was even higher in Sarawak (15%)and in Sabah (16%). The most noticeable progress was made in

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secondary education, with the number of overcrowded classes beingreduced from 8,600 in 1986 to 6,000 (14% of all classes, as comparedwith 23% in 1986). In addition, the 1,239 classes of 45+ studentsrepresented only 3% of all secondary classes and compared well withthe 1,600 in 1989. However, the proportion was still overly high inSabah (33% for classes above 40 students and 15% above 45).

(k) In 1992, double shifting still restricted instruction time andgenerated commuting hardships. The situation was serious overall andcritical in secondary education. In primary education, the number ofclasses detrimentally affected by double shifting increased from11,300 to 13,200 (17% of all classes), almost exclusively inPeninsular Malaysia and Sabah (the numbers were negligible inSarawak). In secondary education, although the number of classesaffected was slightly reduced from 11,700 to 10,500, this stillrepresented an abnormally high proportion (25% of all classes).The situation was still more critical in Sabah (36%).

(1) Despite the above substantial inputs to improve the quality andefficiency of education, major concerns remain with regard to thepersisting urban/rural gap in students' achievements, and thegenerally low, or even deteriorating, achievement test scores inmathematics, English and National Language in primary education(Table 3.7B). However, the rising trend of the average pass rate atthe end of lower secondary education (78% in 1992, the first yearwhen the KBSM was fully implemented) is a positive development at atime when the Government heads for universal upper secondaryeducation and has embarked on accelerated promotion from lower toupper secondary education on the basis of an achievement test whichreplaces the selective national lower secondary school certificate(SRP). The repetition rate is minimal due to automatic promotionover the 9-year primary and lower secondary cycle. However, over 20%of candidates failed the SRP in 1992 (although the first KBSR cohortto take the SRP has shown some improvement). This situation probablyresults from insufficient remedial instruction for low achievers,overcrowding of facilities and double shifting, discrepancies betweenthe informal concepts of the new curricula and the still prevailingformal examination-oriented school culture, and the subsequentdifficulties for teachers with insufficient practical qualificationsto teach the new curricula.

1.16 To increase the efficiency of educational management, the Projectscontributed the following:

(a) Under Loan 2685-MA, a staff development program was offered to 1,780key education officers, including: (i) about 900 teachers andheadmasters, trained as educational leaders and trainers in schoolsand RCs, and (ii) about 900 senior educators and managerial staff atState and MOE levels. All programs were provided by IAB, except forpost-graduate courses which were offered in local and foreignuniversities. Under Loan 2987-MA, an additional 16,700 seniorofficers, school principals, advisors, teacher trainers, masterteachers and resource staff benefited from the training program. Thetraining of trainers and advisors helped IAB not only to improve itsin-house programs but also to create a multiplier effect and

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disseminate staff development down to school level through a networkof outreach courses. It is felt that the program was instrumental insensitizing key staff to educational, cost efficiency and managerialissues, and preparing them for designing and implementing necessarychanges and innovations to the extent the current centralized,directive management system will allow. However, the impact of themanagerial and leadership orientation of the programs has not yetbeen felt, and a number of questions have been raised regarding suchimpact which will be evaluated by a collaborative team including MOEofficers and external specialists, to be identified by the MOE. Itshould also be noted that 30% of fellowships for advanced degreeswere awarded to women. This was a positive development in view ofthe prevailing family roles of women in Malaysian society.

(b) With regard to sectoral policy, the following planned efficiencymeasures could not be successfully implemented: (i) The number ofunderenrolled schools remained at about 2,500 and their average classsize was 15.5, below the 1986 figure; (ii) multigrade teaching waspracticed in 738 schools only (29% of all underenrolled schools, ascompared with the planned 60%); and (iii) designs of reducedclassroom size for small classes were used in only 23 schools andthe protracted study on the educational impact of classroom sizereduction has not yet produced conclusive findings. This and theneed felt by the Government to maintain the present teacher-classratios have resulted in the relatively low cost efficiency of theMalaysian education system (para. 1.20).

(c) However, monitoring and evaluation of education was noticeablyimproved, as anticipated. EPRD established procedures and indicatorsto assess educational inputs and students' achievements, anddeveloped an efficient statistical collection and processing system.This enabled EPRD to produce high quality annual evaluation reportsand statistical yearbooks, and provided the data required forplanning, decision making and policy implementation monitoring.Thus, as the Project progressed, the distribution of educationalfacilities by district, as compared with classes and enrollments, andthe changing position of individual districts in relation to nationalaverages, were monitored annually, and adjustments in allocatingProject resources could be made, as required, to alleviate the mostcritical shortages and achieve greater equity. This was a majorinstitutional building achievement.

1.17 Under Loan 2685-MA, five research and four evaluation studies werecarried out to refine the analysis of major issues affecting quality, costefficiency and equity in education (para. l.lle). The studies were originallyintended to constitute the starting block of a continuing assessment systemthrough periodical updates. However, MOE felt that some studies were based ona limited number of opinions rather than objective primary data collected andprocessed with adequate analytical tools, although many of their findings andconclusions were pertinent and worth considering. The findings of the studieswere discussed among high level MOE officials and headmasters during anational seminar. Many of the findings were utilized by MOE in planning itsactivities and preparing reports, while universities used these findings intheir research programs. There were follow-ups to some studies in the fieldsof teacher attributes by the Teachers' Education Division (TED), tracer

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studies by the Technical and Vocational Education Division, and school mappingby EPRD. However, the studies did not strengthen national researchcapabilities as substantially as expected (Table 3.7C).

1.18 To expand access to better education, the Projects inputs were asfollows:

(a) A total of 9,028 classrooms in 827 schools were built under bothProjects, including 5,141 classrooms in 571 primary schools and 3,887classrooms in 256 secondary schools. This respectively providedabout 206,000 and 155,000 places which benefited an estimated 240,000primary and 210,000 secondary students (taking double shifting intoconsideration), i.e., 9% of primary and 15% of secondary enrollments.

(b) Boarding facilities were provided to 8,740 students under bothProjects. In 1992, a total of 51,400 primary and 159,600 secondarystudents were boarders, i.e., 2% and 11% of primary and secondaryenrollments, respectively, as planned. Boarding units wereestablished mainly in rural schools to expand school catchment areasand in some urban schools to accommodate out-of-town students whootherwise would have been beyond reach of secondary educationfacilities.

(c) These inputs contributed to alleviating the most critical classroomshortages and improving equity in the geographic distribution offacilities. The most significant improvement occurred in Sarawak,with the most underprivileged districts still located in Sabah andPeninsular Malaysia. Universal primarv education was maintained, asplanned, with 2,641,000 students enrolled in public primary schoolsin 1992. Between 1986 and 1992, there was little progress in theoverall classroom-students ratio which improved from 1:40 to 1:39.If underenrolled schools are excluded, the ratio was lower (1:43) inregular schools. However, equity improved, as 24 districts, out of atotal of 113, were below the national average in 1992, as comparedwith 39 in 1986. The classroom-class ratio also increased slightly,from 84% to 85%, with 35 districts (instead of 51) below the nationalaverage. Secondary education was expanded: in 1992, there were1,424,700 secondary education enrollments (73% of the relevant age-group), of which 983,300 were in lower and 441,400 in upper secondaryeducation, representing respective enrollment ratios of 82% and 58%.This was below the planned targets to enroll 1.0 million lowersecondary and 500,000 upper secondary students in 1990, in order toreach a 92% enrollment ratio, with a view to achieving universallower secondary education in 1995, and raise the overall publicsecondary enrollment ratio from 72% in 1986 to 77% in 1990.Moreover, while upper secondary enrollments increased noticeably byover 20% from 366,000 in 1986, the growth of lower secondaryenrollments was a modest 5%, as compared with its 935,000 level in1986. This may be partly attributed to the competition of privateschools. The classroom-student ratio improved from 1:52 in 1986 to1:44, and 43 districts were below the national average in 1992, ascompared with 56 in 1986. The classroom-class ratio rose from 70% to75%, with 48 districts (instead of 57) below the national average.However, despite this effort, the shortage of school facilitiesremains acute, as indicated by the above ratios. This results in

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overcrowding still detrimentally affecting the quality of education,and double shifting still restricting instruction time and generatingcommuting hardships (paras. 1.15j and k).

Proiect Sustainability

1.19 The Projects. The Projects per se are viable and sustainable: bothProjects provided a total of 361,000 places accommodating about 450,000students, i.e., 11% of total primary and secondary enrollments (4,066,000).Project-financed boarding and staff housing facilities accommodated about 6%of all secondary boarders and 3.5% of all primary teachers, respectively.Therefore, within the whole education sector, the Projects generatedrelatively limited incremental recurrent expenditures. In addition, thesequence of Bank-financed projects since 1969 and both Projects, inparticular, have established a strong institutional foundation within the MOE(para. 1.8): with EPRD for policy- and decision-making, planning andmonitoring functions; DSD/PIU for programming and physical implementation; CDCfor improving the substance and methodology of education; and IAB and theteacher training network for teacher and manager training and upgrading. Thisensures that MOE possesses the functional tools required to manage the sectoradequately.

1.20 The Sector. There is, however, a sustainability issue in relation tothe sector at large which results from policies, and overly generalized normsand standards:

(a) The shares of education in the recurrent and total national budgetshave reached 20.1% and 18.1%, respectively, and about 6% of GNP.This is high, considering that universalization of lower secondaryeducation is still at a distance (para. 1.18), and that the 58% uppersecondary enrollment ratio and the current development of highereducation are still insufficient to provide the quantity and type oflabor currently required by the economy. This results from the highstudent unit costs of education which are 25% above the overallaverage for 15 Asian countries5/, and 39%, 12% and 24% above forprimary, secondary and higher education, respectively. These highunit costs are mainly due to staffing norms, such as the 1.7:1primary teacher-class ratio (para. 1.15g) or the assignment of threenon-teaching staff even in small schools, resulting in low student-teacher ratios (20:1 iT primary education overall and 12:1 inunderenrolled schools- , and 18:1 in secondary education). Thetendency for primary teachers to specialize in subject teaching andto teach in the same grade for years also accounts for widevariations in actual teaching workloads. In secondary education,residential and vocational schools and junior science colleges areestimated to cost about four times as much as general schools andthey account for 35% of upper secondary education recurrentexpenditures, although they enroll only 9% of upper secondarystudents. The rising trend of education recurrent expenditures is

5/ Mingat and Tan, Educational Development in Asia, October 1989.

6/ As a comparison, the average primary student-teacher ratio was 33:1 in 15Asian countries and 24:1 in 26 upper middle-income countries in 1989.

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still more concerning: during the 1988-90 period, the number ofteachers in primary and secondary education increased faster (about10% and 12%, respectively) than enrollments (about 5% and 1%).Between 1990 and 1992, primary and secondary education unit costsincreased by over 30%, largely due to salary increases; educationrecurrent expenditures increased faster than national recurrentexpendituresj,and the 1992 budget was 38% higher than actual 1990expenditures- .

(b) High unit investment costs also originate from a general tendency tobuild new facilities rather than remodel and expand existing ones;space and construction norms (e.g., standard 750 square-footclassrooms, even for classes below 40 students, instead of thegenerally accepted 600 sq. ft.), and facility utilization (i.e.,the use of secondary school facilities on a fixed, as opposed torotating, classroom-class basis). A significant reduction ofcritical overcrowding and double-shifting, which would require anestimated 20,000 additional classrooms, demands more cost-efficientnorms and practices. The above levels of expenditures cannotcontinue to increase without question, as Government revenue may beslowing down, and competing claims on education allocations aregrowing, particularly for higher education.

Bank's Performance

1.21 Strengths and Weaknesses. The Bank was instrumental in the overallsuccess of the Projects through close and dynamic operational relationshipsand advice focussing on substantive educational and managerial issues as wellas physical and financial issues. Bank staff were greatly helped in theknowledge of the sector by the sequence of projects since 1969. In addition,the unusual fact that the same Task Manager and Legal Officer were in chargeof the Projects throughout their whole implementation period ensured deeperappreciation of sensitive issues and continuity in relationships, which helpedbuild up a high level of mutual trust. However, disbursement problems wouldhave been alleviated more efficiently with greater clarity and coordination inthe signals given by the Bank regarding its procedures and requirements.

1.22 Proiect Preparation. Loan 2685-MA took a rather long time (ninemissions and 122 staff-weeks) to be prepared, over a period of about threeyears, as it was the first attempt at the sector approach in educationdevelopment in Malaysia. This time was required to ensure full understandingof, and compliance with, the specific definitions, procedures andrequirements, about which clarifications were still needed within the Bankitself. As for overestimated project costs at appraisal, they can beaccounted for by the need to be cautious at a time when the economy wasparticularly unstable (para. 1.10). In comparison, only five missions and 70staff-weeks, over a period of two years, were necessary to prepare Loan 2987-MA, following the lessons learned from the implementation of Loan 2685-MA(Tables 3.9A and 3.9B).

7/ Past Trends and Future Options for Education Expenditure, Annex 3, StaffAppraisal Report, Third Primary and Secondary Education Sector Project(Loan 3536-MA), The World Bank, November 9, 1992.

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1.23 Project Supervision. Monitoring progress in implementing theProjects was facilitated by adherence throughout the implementation period toinitial agreements on a clear sectoral development policy (para. 1.8), apractical format for supervision and Government's review reports, and preciseperformance monitoring indicators. There were 13 review missions (about 70staff-weeks) over a period of six years for Loan 2685-MA, and seven reviewmissions (45 staff-weeks) over a period of three and a half years for Loan2987-MA (Tables 3.10A and 3.10B). Bank implementation reviews were generallyregular (every six months), in accordance with the Loan Agreement, andsynchronized with PIU's and EPRD's annual reporting agenda. Their skill mixwas generally adequate to carry out supervision tasks. Every other missionwas an in-depth review mission analyzing the status of the quality ofeducation, annual education statistics and examinations results as well asphysical and financial progress. Review missions for both Projects werecombined and supervision was carried out jointly with preparation of oncomingprojects. This increased the missions' cost-efficiency, and ensured closecoordination of Bank sectoral operations and their adherence to a common setof objectives. Implementation performance was improved, except for cost-efficiency measures, by the formative assessment of constraints and sustainedpressure by Bank missions for Government's appropriate action to resolvecritical issues. Review missions always prepared detailed aide-memoires whichwere discussed in-depth during wrap-up meetings in the field, and follow-upletters, upon return to Headquarters.

Borrower's Performance

1.24 Education has always been considered as a top priority for socio-economic development in Malaysia (para. 1.1) and the Projects were part andparcel of the national education development policy. Therefore, theGovernment continuously demonstrated strong commitment and support to theProjects, as reflected in the priority given to the Projects for themobilization of resources within the MOE and other Government agenciesinvolved. In terms of finance, once a budget is approved by the Parliament,the necessary liquidities are made available to the executing ministries, asrequired, within the approved limits. Full integration of the Projects withinthis budgetary system ensured adequate funding at all times. It should benoted that, under these conditions, Special Accounts were useless and evenadded cumbersome administrative procedures, as demonstrated under Loan 2685-MA. However, the Bank kept insisting on the necessity to establish a SpecialAccount for Loan 2987-MA and agreed later that this requirement could bewaived from the Loan Agreement. In terms of staffing, the Treasury and thePublic Service Department appointed the additional permanent qualifiedtechnical and accounting staff required for the PIU to improve disbursements.In Sabah and Sarawak, trouble-shooting intersectoral committees wereestablished at the highest level of local government to come to grips withspecific local site acquisition, procurement and disbursement problems.Implementation review reports were carefully prepared by PIU and MOE ProjectSub-Committees (para. 1.8), and contributed to improving Bank missions'efficiency. Supervision wrap-up meetings, chaired by EPU or Treasury, werealways attended by higher level officials from the major Government agencies(EPU, Treasury, PWD, Public Service Department, Auditor General's Office,Accountant General's Office). This gave the representatives from the variousagencies an opportunity to engage in candid discussions on major issues, witha view to taking appropriate action. The Government sent to the Bank detailed

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comments and amendments to mission aide-memoires and follow-up letters,demonstrating deep commitment to the success of the Projects.

1.25 Major Loan covenants were complied with (Tables 3.8A and 3.8B).However, there were difficulties in the following areas: (a) interactionbetween the MOE and the universities, in relation to the studies and the staffdevelopment program, was insufficiently structured and collaborative; (b)there were substantial delays in submitting audit reports; and (c) protracteddelays in collection and processing of perforated vouchers, required by theBank as appropriate proof of payment for expenditures under statements ofexpenditures, resulted in disbursement losses. Most of these deficiencieswere the result of staff shortages and limitation of skills, inadequatemanagerial structures and processing, and insufficient information systems.These difficulties were only alleviated in the last year of projectimplementation.

Findings and Lessons Learned

1.26 The following lessons learned from the implementation of the Projectswere taken into consideration for the preparation of the Third Primary andSecondary Education Sector Project (Loan 3536-MA):

(a) Detailed project preparation and initial agreement on clear policies,plans of action and performance indicators are essential for smoothmonitoring and formative assessment of progress in implementing thehighly diverse components of sectoral projects. For repeaterprojects, such as the Second PSESP, the temptation should be avoidedto replicate a number of components without fully resolving majorproblems still prevailing under the preceding project (para. 1.8).

(b) The strategy to implement, monitor and evaluate the Projects underthe highest MOE authority in collaboration with the Prime Minister'sDepartment, Treasury and PWD was highly positive as (i) educationalpolicy changes, which constituted the prime justification of theProjects, were universally supported at the highest Government level,(ii) MOE's planning, decision-making, financing, monitoring,evaluation and coordination functions were reinforced and itsimplementation capacity was maximized by constant interaction,consensus and assistance among all agencies, which was a noticeableinstitutional development achievement, and (iii) managementstructures and procedures were improved under the pressure of Projectrequirements and all Government agencies' commitment to progress inimplementation and disbursement (para. 1.8).

(c) Greater attention should have been paid to general factors which beardirectly on project implementation, such as sectoral legislation onpublic resource allocation to the various types of schools (para.1.14a), the high sensitivity of any matter pertaining to highereducation, which resulted in the MOE deeming inappropriate andunnecessary for Bank missions to have direct access to universitystaff involved in Project-financed studies and training programs(para. 1.31), specific problems relating to conformity of Chinese andTamil literature for school libraries with the national educationphilosophy (para. l.lld), and criteria for selection of major

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fellowship recipients to improve the balance between gender andethnic groups.

(d) The preparation of terms of reference for sectoral studies shouldhave included methodology guidelines following consultation betweenthe client and the supplier of research services, as well as preciseand objective review mechanisms. The studies have shown thatresearch staff development is still needed in sophisticated researchand measurement techniques, and in the specific fields covered by thestudies (paras. 1.17 and 1.31).

(e) Institutional relationships between local and reputable overseaseducational institutions should have been tapped to a greater extentfor research studies and staff development abroad or locally.Twinning arrangements could have improved the quality of studies andstaff development in local universities through greater continuity inobjective advice and professional cooperation (para. 1.29).

(f) Inclusion of a financial analyst in Bank review missions might haveallowed earlier detection of the growth of education unit costs andbudgets, and might have had a greater influence on the Government toaddress underlying causes (para. 1.20). Under the Third PSESP, theMOE will strengthen its financial and economic analysis capabilitiesand work more closely with the Treasury to achieve efficiency gainswhile enhancing quality. The skill composition of Bank missions willsupport this process.

(g) While both PSESPs contributed to institutional strengthening andcapacity expansion, the Bank was not directly involved in the designof quality components and did not have easy access to related data.Therefore, its "value-added" was not as high as it could have been ata time when learning outcomes were disappointing (para. 1.151). Forinstance, successful implementation of the new curricula was thebasic educational justification for both Projects and, therefore,required careful Bank scrutiny. However, as curriculum developmentwas not financed by the Bank, it was not considered by the Governmentas part and parcel of the Projects. This misunderstanding led tovirtually denying Bank missions direct access to researchers andtheir assessment of curriculum implementation. With "Vision 2020"placing new qualitative and managerial demands on the sector, futureoperations should reflect an improved balance between hardware andsoftware, and the partnership between the Government and the Bankshould allow an open, constructive discussion of information relevantto all sectoral objectives, irrespective of the source of funding.

(h) Two characteristics of the Malaysian education system have been itscentralized nature and high.cost. As the country enters thetransition to New Industrialized Country (NIC) status, greaterflexibility and efficiency will be increasingly critical to achievingthe growth and equity objectives of the system. To respond to thespecific educational needs of vastly different rural and urban schoolpopulations and to adjust the skills output to rapidly changingtechnology, greater autonomy and accountability will be needed at alllevels. Greater empowerment of local authorities, down to the schoollevel, within broad national guidelines oriented towards cost-

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efficient and educationally creative initiatives, might be highlybeneficial in this respect. The Third PSESP will address theseissues through improving the Management Information System, promotinginnovation and research, independent evaluation of staff developmentprograms, and an organization and management assessment of DSD. Tocontain the growth of government spending on education, it isproposed to study combined public and private interventions, keepspending norms under scrutiny and define possible spending targets.

(i) Increased flexibility and greater attention to efficiency imply ashift in performance monitoring away from inputs towards resourceallocation and outcomes, to determine which approaches are mostpedagogically effective and financially affordable, and to measurethe ultimate impact of projects. The Third PSESP proposes a set ofindicators linking inputs, costs and outputs to guide decision andpolicy making, and some micro-level monitoring. Such a system mightplace Malaysia at the cutting edge of educational management.

(j) The bi-annual MOE-focused review format brought limited support forimplementation of educational recommendations in schools (e.g., thepractice of multigrade teaching), which could have made an impact onefficiency. The Third PSESP is expected to offer MOE and Bank staffgreater opportunities for educational interaction and demonstrationin the field.

Project Relationship

1.27 Government and Bank staff had excellent personal and professionalrelationships at all times. EPU, Treasury and MOE staff had considerableexperience over more than two decades in dealing with the Bank. Relationshipswere open and amiable, even when differences occurred about policies andissues of a sensitive nature. Mutual trust often helped in exchangingsensitive information, as required to better appreciate problems. Unbrokencontinuity in the relationships between key Bank staff (para. 1.21) andGovernment higher level officials were positive factors in Projectimplementation. The only difficulties of communication which occurred attimes were due to MOE and Bank missions' staff turn-over.

Consulting Services

1.28 Architectural and engineering services were provided by PWD which isresponsible for public construction. The quality of designs for the TTCs wassatisfactory, although delays resulted from staff shortages. For schools,architectural services were limited, as standard designs were used. Thesedesigns, successfully utilized for previous projects, were appropriatelyadjusted. PWD supervisory services, including collection of payment vouchersfrom contractors, were often insufficient for such a widely dispersed schoolconstruction program. However, after initial delays, private consultantscould be hired by PWD to assist with project implementation.

1.29 Foreign high level specialists from reputable universities andspecialized agencies overseas assisted IAB with its training courses for keyeducators in specific fields and education managers under Loan 2685-MA. Therole of the foreign consultants was significant in establishing linkages with

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foreign institutions and constructive interaction with the local faculty,developing training courses, and expanding the training network (para. 1.16a).

1.30 Overseas training was also contracted with universities andspecialized agencies of high repute. The specialized training programs, notavailable in Malaysia, covered the whole gamut of major topics relevant to theeducational and managerial skills required. The outcomes were satisfactory tothe beneficiaries. However, given the cost of the program, an impactevaluation is planned as a basis for further improvement.

1.31 The studies and post-graduate training programs contracted with localuniversities were generally disappointing (para. 1.14b) with regard to timelyprogramming, availability of qualified and fully committed staff, andrelevance of training programs to Project objectives. This resulted frominsufficient identification of researchers and trainers available for thespecific tasks required, and inadequate preparation of the work agenda,methodology, reporting and review mechanisms. Bank staff's limited contactswith researchers and trainers (para. 1.26c) precluded sustained and opendiscussions on work processes, the findings of the studies, and trainingprogram contents and outcomes.

Project Documentation and Data

1.32 Adequacy of SAR and Major Papers. The SAR and supporting papers weresatisfactorily prepared and provided generally well articulated referencesrequired to monitor Project implementation easily and efficiently. Banks pervision reports and Government periodic review reports were carefullyepared according to agreed formats. They were generally consistent in their

findings and recommendations which were regularly conveyed to the highestGovernment authorities for comment and action. Project files in the AsiaInformation Center and in the Division, and the SAR relating to the ThirdPSESP provided documents needed to prepare the PCR.

1.33 Availability of Relevant Data to PCR Mission. The PCR missionbenefited from the excellent cooperation of all MOE divisions, IAB anduniversities involved in Project implementation. The mission could collectmost of the necessary data through interviews and analysis of documents.Essential MOE project data, which were computerized during Projectimplementation, were of high quality and well related to the needs of themission.

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PART II. PROJECT REVIEW FROM THE BORROWER'S PERSPECTIVE

Adeguacy and Accuracy of Factual Information in Part III

2.1 The Coverrunent is satisfied with the adequacy and accuracy of thefactual information in Part III of this report. The information was preparedby the Bank in collaboration with representatives of the Government. The datashould provide readers with insights to the strengths and weaknesses ofProject implementation.

Government's Comments on the Projects

2.2 The Government's comments are as follows:

(a) Provision of Equipment. In relation to provision of equipment toschools, it should be noted that there are schools which wereoriginally established and managed by private associations and builton private land. These schools are of a special category and byvirtue of their establishment, do not receive the full complement ofgovernment assistance in terms of development budget.

(b) Teacher-Class Ratio. We appreciate the Bank's concern regarding theteacher-class ratio in primary schools. However, this ratio isnecessary in view of the high degree of professional commitmentrequired of teachers under the new primary school curriculum. Thisincludes preparation of materials in line with the pupil-centeredapproach in teaching, continuous assessment of pupils' progressincluding project work and overseeing the implementation ofco-curricular activities. In addition, the teaching of subjectswhich are very specific in nature such as Islamic ReligiousEducation, English Language, Music, Art and Pupils' Own Language(Tamil, Mandarin and Iban) requires special subject teachers and thuscontributes to the high teacher-class ratio. Other special needs ofthe schools, such as remedial instruction, library services, sportsand media also require special teachers as these are specialfunctions. A high teacher-class ratio allows sufficient time forteachers to undertake their responsibilities more efficiently andthis eventually helps to improve the quality of primary education.

(c) Multigrade Teaching. We appreciate the Bank's concern but due to thelack of trained teachers and materials, the implementation ofmultigrade teaching has not been effectively carried out. However,MOE has already taken steps and action to overcome these problems.

(d) Consolidation of Underenrolled Schools. Most of the underenrolledschools are in remote areas which are not easily accessible.Attempts to consolidate these schools have not been successful.However, the MOE is taking measures to make these schools moreeffective by improving multigrade teaching and promoting, wheneverpossible, alternate-year students' intake, to increase class sizes.

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(e) Reduced Classroom Size. The present size of classrooms are suitablefor the implementation of KBSR, as it allows ample space forclassroom activities as well as a better display of materials, andthe setting up of resource corners, as emphasized by the KBSR in itsactive group learning approach. The reduction of classroom sizewould not necessarily result in substantial cost saving and may notfacilitate the effective implementation of the KBSR in the above-mentioned areas.

(f) Staff Development. The conversion of advanced degree fellowshipsabroad to local university programs was to enable a larger group tobenefit from staff development programs at the post-graduate level.In addition, in view of the lower English proficiency of somecandidates, courses conducted locally were more suitable. However,there were difficulties arising from insufficient facilities andmanpower to cope with the sudden increase in the number of full-timestudents as well as some specific areas of study at the post-graduatelevel. The structure and design of the course which was prepared forpart-time students did not work in favor of full-time students.Monitoring of the staff development program could not be undertakenefficiently as the staff development unit was newly established andconsisted of officers who were also involved in other full-timeassignments. However, the MOE has taken steps in requesting theestablishment of a staff development unit to be manned by a fullcomplement of staff. The MOE agrees to the need of evaluating staffdevelopment programs and will itself undertake this responsibility.

(g) Studies. The MOE is aware of the need for an open discussionpertaining to studies between the Bank and the relevant agencies.Therefore, the MOE will endeavor to facilitate such discussion whenthe need arises.

Evaluation of Bank's Performance

2.3. The Bank has provided a significant input into the preparation andimplementation of the Projects. There has been a close rapport between bothparties and we have been able to proceed with the Projects with not muchhindrance. It would be greatly appreciated if new Bank personnel couldfamiliarize themselves with the social, political and economic situation inthe country for a more effective and meaningful contribution.

Evaluation of Borrower's Performance

2.4. Even though there were some problems in the implementation ofProjects, overall objectives of the Projects were achieved and helped toimprove education in the country.

Maior lessons learned

2.5. The MOE is well aware of the importance of close and systematicmonitoring of project implementation. Efforts are being made to strengthenthe monitoring mechanism as well as the upgrading of skills of officersinvolved in monitoring activities at all levels. The delay in schoolconstruction is due to the lengthy process of land acquisition. In view of

- 23 -

this, land has to be acquired well in advance before construction begins.This requires an early disbursement of funds.

Relationship with the Bank

2.6. The Government of Malaysia has always been able to discuss openly andresolve amicably any issues with the Bank. It is hoped that this cordialrelationship can be sustained and further strengthened.

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PART III. STATISTICAL INFORMATION

Table 3.1: RELATED IBRD LOANS

Loan Number Year of AporovalProject Title Purpose Status Comments

Loan 599-MA Expand general secondary 1969 General objectives successfully achievedFirst education in the Completed except for targeted enrollments ofEducation underprivileged State of in November technical and agricultural schools, due toProject Sabah, reorient general 1977 inadequate student admission criteria and

education towards a more incentives, and the weak practicalpractical bias, and increase technical component of school curricula.the output of skilled Implementation delays resulted in a 67%middle-level manpower. time overrun. Under-utilization of

technical assistance resulted in a 1 5%project cost underrun; about 20% of theLoan was cancelled.

Loan 810-MA Improve curriculum 1972 Successfully implemented overall, exceptSecond development and in-service Completed for the high examination failure rate inEducation teacher training; expand in December vocational schools. There was a 63%Project the use of educational 1980 implementation time overrun and a 3%

media; increase the output cost underrun. However, theand quality of graduate establishment of the Curriculumscience teachers and Development Center was a majorscientific manpower; and institutional development achievement.further expand vocationaland technical training.

Loan 974-MA Improve the quality of 1974 Major objectives successfully achievedThird Education education, particularly in Completed except for the difficulty to attractProject science and technology, in June 1984 secondary students into science streams,

and expand educational and under-utilization of media in themedia coverage, classroom due to inadequate financialparticularly in Sabah and and human resources. ImplementationSarawak. was problematic, resulting in a 19% cost

overrun and a 66% time overrun.

Loan 1329-MA Improve the quality and 1976 Major objectives successfullyFourth equity of basic education, Completed implemented except for the non-formalEducation strengthen the school in July 1985 component, eventually financed by theProject mapping and planning Borrower, and for the staff trained lost to

capacity of the MOE and project institutions for lack of positions inthe PWD, improve the MOE and PWD. There was an overall 6%quality and increase the cost underrun and an implementationoutput of skilled workers, time overrun of 92%. Delays were dueimprove technical teacher to staff shortages in the MOE andtraining, and initiate the Ministry of Labor and Manpower (MOLM)development of nonformal Project Implementation Units (PlUs), andeducation. inexperienced and undercapitalized

contractors. However, establishing fourState Education Resource Centers(SERCs) and strengthening the MOEEducational Planning and ResearchDivision (EPRDI were major institutionaldevelopment achievements.

- 2 5 -

Table 3.1: RELATED IBRD LOANS (cont.)

Loan Number Year of ApprovalProject Title Purpose Status Comments

Loan 1657-MA Further improve the 1979 Project objectives successfully reachedFifth quality and equity of general Completed except for the occupational trainingEducation education and promote in March study, eventually financed by otherProject national integration in 1987 sources, and per capita grants for

disadvantaged districts, operating expenditures insufficient toimprove the planning, provide an enriched environment inimplementation and schools. The Loan was fully disbursedmanagement capabilities of two months ahead of the Closing Date.public administration staff, The overall cost overrun was 11 % andand prepare an overall plan time overrun was 45%.for occupational training of Implementation delays were due tobasic education graduates. difficulties in site acquisition and

contractors' performance.Establishment of a National Institute ofEducational Management and a NationalInstitute of Public Administration was amajor institutional developmentachievement.

Loan 2145-MA Expand the training capacity 1982 Major objectives successfully metSixth Education for technicians and skilled Completed except for the fellowships program(Industrial workers, and improve the in June 1989 under the MOLM, and studies on newTraining) Project quality of training curricula training and incentive schemes.

and teachers, and the Inadequate staffing of MOE and MOLMmanagement and monitoring PlUs, and problems with technicalof the training systems and assistance contracting, equipmentrelated recurrent procurement and construction resultedexpenditures of the MOE in a 44% time overrun. The costand the MOLM. underrun was 54%, due to appraisal

overestimates, economic recession andfavorable currency fluctuations. About32% of the Loan was cancelled.

Loan 2601-MA Further increase the 1985 All major project componentsSeventh supply of technicians and Completed completed except for the staffEducation skilled workers, improve the in June 1992 development program under the MOLM,(Second quality and management of most of which was financed by otherIndustrial training, strengthen sources. Difficulties similar to thoseTraining) Project) manpower development affecting the preceding project resulted

planning, and further in a 42% time overrun and a 50% costpromote training in industry. underrun. About 51 % of the Loan was

cancelled.

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Table 3.1: RELATED IBRD LOANS (cont.)

Loan Number Year of ApprovalProject Title Purpose Status Comments

Loan 2887-MA Expand university enrollment 198 All major project componentsNinth Education capacity to meet priority Completed completed except for the establishment(University manpower needs in in December of a long-term university developmentDevelopment industrial engineering and 1992 plan and strategies. The project wasProject) medical sciences, strengthen completed one year behind the original

university management, and Completion Date.improve planning ofuniversity development andoperations.

Loan 3536-MA Promote quality and 1992 Under implementation.Third Primary excellence in the teaching- Effectiveand Secondary learning process, expand on March 16,Education Sector access to quality education, 1993Project and improve efficiency of

sectoral and projectmanagement.

3571 -MA Increase the quantity and 1993 Under implementation.Polytechnic quality of technical Effective onDevelopment manpower for industry September 2,Project through the expansion of the 1993

nation's training capacityand improvement of pre-service training for higherlevel skilled workers andtechnicians.

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Table 3.2A: PROJECT TIMETABLE (LOAN 2685-MA)

---------------- Dates------------------Revised Revised

Stage Planned (Jan. 1991) (Jun. 1992) Actual

Reconnaissance 04/83 04/83 '

Identification 08/83 08/83

Preparation I 10/83 10/83

Preparation II 06/84 06/84 2'

Pre-Appraisal I 10/84 10/84 l/

Pre-Appraisal II 03/85 03/85

Appraisal 05/85 05/85

Post-Appraisal I 11/85 11/85

Post-Appraisal II 02/86 02/86

Loan Negotiations 03/86 03/86

Board Presentation 04/29/86 04/29/86

Loan Signing 05/23/86 05/23/86

Loan Effectiveness 08/01/86 08/01/86

Completion 06/30/90 12/31/92

Loan Closing 06/30/91 06/30/92 12/31/92 12/31/92

" Preceded by preliminary discussions in late 1982 and early 1983; initialProject Brief issued in June 1983.

' Government's Preparation Document completed in July 1984; revisedProject Brief issued on July 27, 1984.

a' Final Project Brief issued on January 3, 1985; draft Policy Papercompleted in February 1985.

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Table 3.2B: PROJECT TIMETABLE (LOAN 2987-MA)

-Dates -

Stage Planned Actual

Preliminary Discussions 02/86 02/86

Reconnaissance 10/86 10/86

Identification 04/87 04/87 2'

Pre-Appraisal 08/87 08/87 3/

Appraisal 02/88 02/88

Loan Negotiations 06/88 06/88

Board Presentation 08/02/88 08/02/88

Loan Signing 08/11/88 08/11/88

Loan Effectiveness 10/25/88 10/25/88

Completion 12/31/91 12/31/92

Loan Closing 12/31/92 12/31/92

" Initial Executive Project Summary issued in December 1986;initial Project Brief issued in February 1987.

2' Project Brief issued in June 1987.

V' Final Executive Project Summary issued in November 1987.

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Table 3.3A: CUMULATIVE ESTIMATED AND ACTUAL DISBURSEMENTS (LOAN 2685-MA)

----------------------------- Cumulative disbursements in USS million ----------------------------Actual

Appraisal Revised V' Revised 2/ as % ofIBRD fiscal estimates estimates estimates appraisalyear/semester May 1985 Actual Dec. 1990 Actual Jun. 1992 Actual estimates

1987 1st 2.5 5.5 5.5 5.52' 42nd 5.0 14.2 14.2 14.2 11

1988 1st 10.1 25.2 25.2 25.2 202nd 21.5 35.4 35.4 35.4 28

1989 1 st 35.5 35.4 35.4 35.4 282nd 54.4 41.4 41.4 41.4 33

1990 1 st 73.5 48.0 48.0 48.0 382nd 92.7 59.5 59.5 59.5 47

1991 1st 110.7 80.8 70.0 70.0 552nd 127.0 95.8 75.9 75.9 60

1992 1st 111.8 81.6 81.6 642nd 120.8 91.9 91.9 72

1993 1 st 127.0 98.7 96.1 762nd 111.7 109.24' 86

1' In December 1 990, the Government requested an extension to the original Closing Date byone year, to June 30, 1992, to accommodate the delayed construction of the Batu Pahatand Sri Pinang Teacher Training Colleges (TTCs).

2' In June 1992, the Government requested a second extension of the Closing Date by sixmonths, to December 31, 1992, to allow for the procurement of equipment for the BatuPahat and Sri Pinang TTCs. The Government also requested the cancellation of US$1 5.3million of the Loan; this amount was cancelled on June 23, 1992.

3' Including the US$8.5 million initial deposit into Special Account made on January 25,1988.

4' The final disbursement was made on April 15, 1993, and an additional US$2.5 million ofundisbursed funds was cancelled on September 29, 1993, the date on which the recoveryof the Special Account and refund of the remaining balance was made.

Loan 2685-MA disbursements proceeded smoothly and ahead of schedule during the first twoyears of implementation, but slowed in the following two years to less than two-thirds ofappraisal estimates. They lagged behind the November 1990 revised estimates, and as of theClosing Date of December 31, 1992, represented 76% of the original Loan or 86% of therevised Loan Amount following the cancellations. The final amount disbursed reached 98% ofthe June 1992 revised estimates. A major cause of disbursement delays was the collection ofpayment vouchers by different government agencies, depending on the type and location ofexpenditures, without sufficient coordination (e.g. for fellowships abroad, the AccountantGeneral's Office within the Treasury collected the vouchers relating to fellowships in Britainthrough the High Commission in the United Kingdom, while the MOE Finance Division collectedthose from other countries through the Malaysian Students' Department in each specificcountry). For civil works, the vouchers were collected by PWD; however, the understaffing ofPWD resulted in its inability to collect vouchers from the many individual contractors. Theproblem was compounded by the weak initial linkages between PWD and the MOE or StateEducation Departments (SEDs), particularly in Sabah and Sarawak, and by the PIU's accountingand technical staff shortage. This kept PIU from ensuring adequate coordination between allMOE divisions and external government agencies involved, and travelling to East Malaysia asrequired to help expedite the collection of vouchers.

- 30 -

Figure 3.3A. DISBURSEMENT GRAPH (LOAN 2685-MA)

1t0

120-

100-

92 80

60-

40-

20-

0 , * . .

1987 1988 1989 1990 1991 1992 1993IBRD fiscal year

Appmiml stimate -U- nvimed. Nov. 90 E3 Reviwd. Juim 92 in Actual

- 31 -

Table 3.3B: CUMULATIVE ESTIMATED AND ACTUAL DISBURSEMENTS (LOAN 2987-MA)

---- Cumulative disbursements in US$ million ----Appraisal Actual as %

IBRD fiscal estimates of appraisalyear/semester Feb. 1988 Actual estimate

1989 1st 2.4 0.0 02nd 10.9 0.0 0

1990 1 st 30.8 6.7 112nd 46.7 16.5 28

1991 1st 54.5 26.4 452nd 58.3 34.6 59

1992 1 st 58.6 38.7 662nd 58.7 50.4 86

1993 1 st 58.8 56.5 962nd 58.8 58.8 100

Note: The Closing Date was December 31, 1992.

Loan 2987-MA disbursements progressed satisfactorily. Although delayedby one year, they virtually caught up with the appraisal schedule over aperiod of three and a half years, rising from 22% of the Loan at thebeginning of the second year of Project implementation to 96% as of theClosing Date of December 31, 1992. Remaining expenditures incurred priorto the Closing Date were fully disbursed by March 12, 1993. Disbursementsunder Loan 2987-MA were faster than under Loan 2685-MA because theyrelated to school construction and staff development programs which wereeasier to manage, following the lessons learned from the First Project andthe alleviation of major implementation difficulties.

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Figure 3. 3B. DISBURSEMENT GRAPH (LOAN 2987-MA)

60

50-

,to

10-

20-

10

0*1989 1990 1991 1992 1993

IBRD fical year

Appraiml Etimxate -- Actual

- 33 -

Table 3.4A: PROJECT IMPLEMENTATION (LOAN 2685-MA)

Objective and Targets Actual Accomplishments

Teacher Trainina Colleaes

To contribute to meeting All three TTCs at Raja Melewar (Seremban), Batu Pahat (Johore) andteacher demand and replace Sri Pinang (Bukit Mertajam) are in operation. Tendering wasinadequate teacher training completed in November 1986 and construction in January 1990,facilities, build, equip and April 1992 and December 1992, respectively. Original equipmentfurnish three TTCs to be lists were drafted in 1986. Their revision in accordance with thecompleted in June 1989. new school curricula started in mid-1989 and was completed In May

1990. Due to subsequent adjustments to TTC training objectives,the lists were updated in 1992.

School Construction

To alleviate critical shortages The outcome of the program exceeded appraisal targets by 40%,of facilities in underprivileged as follows:districts, build, equip and Actualfurnish new schools and Plan Total Phase I Phase IIrelated boarding and staffhousing facilities, and extend Classrooms: Primary 2,200 3,070 2,295 775existing facilities to establish Secondary 1,100 1,556 1,022 534more cost-efficient primaryschools, relieve the pressure Total 3,300 4,626 3,317 1,309in crowded secondaryschools, and provide Schools: Primary 260 337 258 79specialized and administrative Secondary 70 104 68 36facilities. The primary andsecondary school construction Total 330 441 326 115programs were planned to becompleted in December 1988 Boarding units: 24 32 24 8and June 1989, respectively. Boarders accommodated: 4,700 5,890 4,370 1,520

Staff quarters: Blocks 105 171 118 53Units 503 1,096 772 324Staff 1,500 3,300 2,330 970

The school construction program was geographically distributedas follows:

Primary Secondary StaffSchools Schools Quarters Boardina Tota

Peninsular Malaysia 256 78 113 34 479Sabah 45 6 17 -- 62Sarawak 36 20 41 -- 64

Total 337 104 171 34 605

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Table 3.4A: PROJECT IMPLEMENTATION (LOAN 2685-MA) (cont.)


School Construction The original program was virtually completed on schedule:(cont.) in December 1988, 89% of the primary schools were completed

or close to completion, and in June 1989, 98% of the totaloriginal program was completed. To utilize undisbursed funds,a second phase, including 97 schools, 49 staff quarters and8 boarding units, was started in October 1988 in PeninsularMalaysia, and 18 schools were added to the East Malaysiaprogram in mid-1989. On the original June 1991 Closing Date,9 schools each in Sabah and Sarawak remained to be completedunder Phase I, and the construction of 15 schools in PeninsularMalaysia, 2 schools in Sabah and another 8 in Sarawak were stillincomplete under Phase II. On the December 1992 Closing Date,6 schools and one staff quarter in Peninsular Malaysia, 3 schoolsin Sabah, and 5 schools in Sarawak were still under construction,expected to be completed by the end of 1993.

Educational Resources

(a) To improve the quality of The book program was implemented in three phases. A total ofuniversal primary education, reach over 11.8 million books under 2,248 titles were distributed toa primary student-library books 7,017 schools. The first two phases, focusing on books in theratio of 1:5 by 1990 through the National Language, were completed virtually on schedule in Mayprovision of about eight million 1988 and December 1989. The third phase raised somelibrary books to about 6,700 problems: the 110,000 Tamil books could not be deliveredprimary schools, supplementing the earlier than January 1991, and the 4.4 million English books andexisting libraries of about 2,000 560,000 Chinese books not earlier than mid-1992. Undisbursedlarger schools and creating new funds allowed the provision of library books to new schoolslibraries in the 4,700 most under the Loan 2685-MA extended construction programs andunderprivileged rural schools. The Loan 2987-MA, and reference books to 28 TTCs in 1989 andprogram was planned to be 1990, and the four SERCs and 365 District Education Resourcecompleted by mid-1989. Centers (DERCs), including 350 located in selected schools,

14 located in State Education Departments (SEDs) and onelocated within the MOE Educational Technology Division (ETD),in May 1992.

(b) To promote an active learning The school equipment program was implemented in threeapproach, as emphasized by the phases: Phase I provided teaching and audio-visual aids, handnew primary school curriculum, tools and electrical kits to the 365 DERCs (314 in Peninsularprovide the 5,400 rural primary Malaysia, 25 in Sabah and 26 in Sarawak). It was completed inschools with basic sets of audio- July 1987. Under Phase II, TVNCR equipment and micro-visual aids and equipment so that computers were provided to the DERCs in mid-1 988 and mid-they can benefit from MOE radio 1989. Phase IlIl provided: (a) basic equipment to 4,229 schooland TV programs, and provide Resource Centers (RCs), which was delivered to 850 schools inequipment to 365 DERCs to assist Sabah in 1989 and to 3,379 schools in Peninsular Malaysia andteachers in satellite schools to Sarawak in 1990, and (bl complementary equipment which wasproduce better teaching-learning delivered to DERCs in Peninsular Malaysia and Sarawak inmaterials for the specific needs of September 1990, and in Sabah in September 1991. Thetheir classes. The program was to remaining contracts, providing equipment to the four SERCs andbe completed in June 1989. the 295 new DERCs built under Loan 2987-MA were signed in

May 1992. The last delivery of multi-media kits to DERCs isexpected to be completed in late 1993.

- 35 -



Studies Proaram

To improve educational development planning The studies were assigned to major universities asand qualitative assessment of the education follows: (a) University of Science--(1) and (7);system, and to increase the efficiency of (b) University of Agriculture--(2) and (8); (c)investments in education, carry out five University of Malaya--14) and (9); (d) Nationalresearch and four evaluation studies to refine University--C5); and University of Technology--(6).the analysis of major issues affecting quality, In addition, the MOE's EPRD carried out the schoolcost efficiency and equity in education. The mapping exercise in East Malaysia. The terms ofresearch studies included: 'The Relationship reference of the studies were developed by theBetween Teacher Attributes and their Project Sub-Committee on Research and EvaluationEffectiveness" (1); 'The Management of on the basis of universities' and EPRD's proposals.School Facilities, Including Education Resource They were reviewed by the Bank in 1987. InterimCenters" (2); "School Mapping in Sabah and reports were reviewed in April 1989, except for theSarawak' (3); "The Effect of Educational analysis of graduates' occupational opportunities inInputs, and Socio-Economic and Environmental Study 4 which was completed later. In late 1989,Factors on Students' Achievement and Job the final reports of studies (1), (2), (5), (6) and (8)Opportunities" (4); and "The Process of were completed. The last study (9) was completed inNational Integration in the Educational Setting" early 1991. The Bank's comments were conveyed to(5). The evaluation studies included: universities through EPRD. Undisbursed funds were"Employment of Polytechnics Graduates, and utilized to conduct a national seminar on the findingsTechnical and Vocational Schools" (6); "The of the studies in February 1991 and to carry out aEducational Media Service" (later renamed the school mapping exercise in Peninsular Malaysia,Educational Technology Division) (7); "The which was completed in June 1992.Textbook Loan Scheme" (8); and "The Systemof Educational Evaluation and Testing inMalaysian Schools" (9). The program wasplanned to be completed in June 1989.

Staff Development Proaram

To increase the efficiency of educational The program was implemented as follows:management and fill urgently needed key Actualpositions at federal, state, district and school Plan 1990 1991 1992levels, finance fellowships and specialistservices. The program was to be completed Fellowships abroadin June 1990. MA degrees 41 8 9 9

PhD degrees 0 0 0 1Short-term courses 100 103 116 175

Sub-total 141 111 125 185

In-country fellowshipsShort-courses 400 600 704 731Specialist courses 0 494 624 664Training Module

Development Program 0 -- 111 124MA degrees 0 44 73 75Advanced diplomas 0 1 1 1

Sub-total 400 1,139 1,513 1,595

Total 541 1,250 1,638 1,780

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Staff Develooment Proaram (cont.) The program was often modified after a hesitant startto accommodate programs financed by externalsources and, in 1987, the number of advanceddegrees abroad was reduced in order to increase thenumber of short-term fellowships abroad, in-countryshort-term programs and advanced degree courses inlocal universities. Institute Aminuddin Baki (IAB) hada roster of qualified foreign specialists at an earlystage of project implementation and 34 foreignspecialists of high repute could be recruited for a totalof 45 staff-months of services. Ten local specialistsalso participated in the program for a total of 24staff-months of service. However, the recruitingprocess was delayed by extended negotiationsbetween IAB, the Treasury and the identifiedspecialists.

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Table 3.4B: PROJECT IMPLEMENTATION (LOAN 2987-MA)


School and Resource CenterConstruction

To further alleviate critical The program virtually reached all appraisal targets. It wasshortages of facilities in implemented in two phases: Phase I, completed in December 1990,underprivileged districts, build, represented about 90% of the overall program, with emphasis onequip and furnish new schools primary schools, staff housing and resource centers; and Phase IIand related boarding and staff represented the remaining 10%. The program was implemented ashousing facilities; and to follows:optimize the use of Actualeducational resource Plan Total Phase I Phase IIequipment and materialsprovided to the DERCs under Classrooms: Primary 2,100 2,071 2,071 --Loan 2685-MA, provide new Secondary 2,300 2,331 1,865 466physical facilities to 295DERCs. Total 4,400 4,402 3,936 466

Schools: Primary 240 234 234 --Secondary 150 152 120 32

Total 390 386 354 32

Boarding units: 16 16 12 4Boarders accommodated: 2,800 2,840 2,130 710

Staff quarters: Blocks 51 50 50 --Units 290 295 295 --

Staff 1,200 1,200 1,200 --

Resource Centers: 295 295 295 --

The program was geographically distributed as follows:

Primary Secondary StaffSchools Schools Quarters Boardina Centers Tot

PeninsularMalaysia 213 149 50 16 253 681

Sabah 4 1 -- -- 21 26Sarawak 17 2 -- -- 21 40

Total 234 152 50 16 295 747

- 38 -

Table 3,4B: PROJECT IMPLEMENTATION (LOAN 2987-MA) (cont.)


School and Resource Center Construction started about one year behind schedule.Construction (cont.> In June 1990, only 50% of staff housing and 40% of the

resource centers were completed, as compared with theplanned 100%. In December 1990, primary schools,which should have been fully implemented, were only53% complete. In June 1991, the planned completiondate for secondary schools and boarding, thesecomponents were only 53% and 44% complete,respectively. However, on December 31, 1991, theoriginal Project Completion Date, Phase I and Phase IIwere, respectively, 100% and 89% complete in PeninsularMalaysia, 85% and 80% complete in Sabah, and 81 % and50% complete in Sarawak. By the December 1992Closing Date, 16 schools, one staff quarter and 2 boardingblocks in Peninsular Malaysia, 3 schools in Sabah and 6schools in Sarawak were still under construction, expectedto be completed by the end of 1 993.

Staff Development Proaram

To further increase the efficiency of Due to the multiplier effect of IAB outreach programseducational management and fill key down to the school level, delivered by the trainers trainedpositions in the MOE, SEDs, DEOs and under the First PSESP, the outcome of the programschool levels, provide fellowships exceeded the targets as follows:abroad in educational, technical andmanagerial fields, and local programs Actualto train school principals, and Plan 1990 1991 1992advisors, master teachers, teachertrainers and resource staff. The Fellowships abroadprogram was to be implemented by MA degrees 17 8 8 1December 1 990 for local training andDecember 1991 for fellowships In-countryabroad. School principals'

course 800 1,325 119 0Outreach programs 6,600 13,207 2,035 0

Sub-total 7,400 14,522 2,154 1

Total 7,417 14,530 2,162 1

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Table 3.5A: PROJECT COSTS (LOAN 2685-MA)(in US$ million)

Estimated Costs ' Final Costs(Appraisal, May 1985) (December 31,1992)

Category Local Foreign Total Local Foreign Total

Civil Works 145.5 80.2 225.9 163.2 82.0 245.2

Land 6.2 - 6.2 6.1 - 6.1

Professional Services 6.2 1.1 7.3 0.1 0.1 0.2

Furniture 8.3 2.8 11.1 4.7 1.6 6.3

Equipment 3.5 32.0 35.5 1.5 18.7 20.2

Library books 14.3 4.9 19.2 13.1 4.4 17.5

Fellowships abroad 0.5 5.1 5.6 0.3 1.9 2.2

Local Training 0.5 0.1 0.6 0.3 0.1 0.4

Specialist Services 0.1 0.6 0.7 0.1 0.2 0.3

Studies 0.5 0.2 0.7 0.4 0.2 0.6

Total Proiect Cost 185.8 127.0 312.8 189.8 109.2 299.0

In Ringgit (M$) million 456.9 312.8 769.7 509.1 289.5 798.6

2' Including physical and price contingencies.

The total Project cost was estimated at appraisal at US$312.8 million, including US$47.7 millionof contingencies, for expenditures over a five-year period. At the appraisal exchange rate ofRinggit IM$) 2.46 to US$1.0, this was equivalent to M$ 769.7 million. The final Project costwas M$ 798.6 million, expended over seven years. Based on average annual exchange ratesfluctuating from M$ 2.58 in 1986 to 2.75 in 1991, the final Project cost Is estimated atUS$299.0 million. The underrun of US$13.8 million represents 4% of the originally estimatedtotal Project cost. The foreign exchange component was estimated as follows: 35% for civilworks; 15% for professional services; 25% for furniture and books; 90% for equipment,fellowships abroad and specialist services; and 20% for studies and local training.

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Table 3.5B: PROJECT COSTS (LOAN 2987-MA)(in US$ million)

Estimated Costs v' Final CostslAppraisal, February 1988) (December 31, 19921

Category Local Foreign Total Local Foreign Total

Civil works andprofessional services 93.7 51.0 144.7 101.8 51.4 153.2

Furniture 4.5 1.5 6.0 5.8 1.9 7.7

Equipment 0.6 5.4 6.0 0.4 4.7 5.1

Fellowships abroad 0.1 0.8 0.9 - 0.8 0.8

Local Training 2.1 0.1 2.2 1.6 - 1.6

Total Proiect Cost 101.0 588 1598 109 6 5 8 168.4

In Ringgit (M$) million 252.6 146.9 399.5 299.2 160.5 459.7

1' Including physical and price contingencies.

The total Project cost was estimated at appraisal at US$159.8 million, including US$13.4 millionof contingencies for expenditures over a four-year period. At the appraisal exchange rate ofRinggit (M$) 2.50 to US$1.0, this was equivalent to M$ 399.5 million. The final Project costwas M$ 459.7 million expended over four and a half years. Based on average annual exchangerates fluctuating from M$ 2.62 in 1988 to 2.75 in 1991, the final Project cost is estimated atUS$168.4 million, which represents an overrun of M$ 8.6 million, i.e. 5% of the originallyestimated total Project cost. The foreign exchange component was estimated as follows: 35%for civil works; 25% for furniture; 90% for equipment; and 100% for fellowships abroad.

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Table 3.6A: PROJECT FINANCING (LOAN 2685-MA)(in US$ million)

Estimated Financing Final Financing(Appraisal, May 1985) (December 31, 1992)

Category GOM IBRD Total GOM IBRD Total

Civil works 125.6 67.7 193.3 163.2 82.0 245.2

Land 5.6 - 5.6 6.1 - 6.1

Professional services 5.4 0.9 6.3 0.1 0.1 0.2

Furniture 6.8 2.3 9.1 4.7 1.6 6.3

Equipment 2.9 25.6 28.5 1.5 18.7 20.2

Library books 11.9 4.0 15.9 13.1 4.4 17.5

Fellowships abroad 0.5 4.3 4.8 0.3 1.9 2.2

Local training 0.3 0.1 0.4 0.3 0.1 0.4

Specialist services 0.1 0.5 0.6 0.1 0.2 0.3

Studies 0.5 0.1 0.6 0.4 0.2 0.6

Contingencies 26.2 21.5 47.7 -

Total 185.8 127.0 .312.8 189.8 109.2 299.0

The original Loan of US$127.0 million was to finance the foreign exchange componentrepresenting 41 % of the total Project cost. With the cancellation of US$15.3 million of Loanfunds on June 23, 1992 and of US$2.5 million on September 29, 1993, Loan proceedstotalling US$109.2 million financed 36% of the final total Project cost.

- 42 -

Table 3.6B: PROJECT FINANCING (LOAN 2987-MA)(in US$ million)

Estimated Financing Final Financing(Appraisal, February 1988) (December 31, 1992)

Category GOM IBRD Total GOM IBRD Total

Civil works andprofessional services 86.4 46.4 132.8 101.8 51.4 153.2

Furniture 4.1 1.4 5.5 5.8 1.9 7.7

Equipment 0.5 4.8 5.3 0.4 4.7 5.1

Fellowships abroad 0.0 0.8 0.8 - 0.8 0.8

Local training 2.0 0.0 2.0 1.6 - 1.6

Contingencies 8.0 5.4 13.4 - -

Total 101.0 58.8 159.8 109.6 168 4

The original Loan of US$58.8 million was to finance the foreign exchange componentrepresenting 37% of the total Project cost. With a cost overrun of USS8.6 million, the Loanfinanced 35% of the final total Project cost.

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Table 3.7: PROJECT RESULTS (LOANS 2685-MA AND 2987-MA)A. Benefits

I. QUALITY OF EDUCATION

TEACHER TRAINING

Obiective: Increase the capacity Actual: In 1992, there were 30 TTCs offering the three plannedand improve the quality of teacher pre-service training programs, namely the 2 1/2-year Primarytraining to meet the needs of the Teacher Certificate course, the 2 1/2- to 3-year Non-Graduatenew curricula and cope with Lower Secondary Certificate course, and the one-year Post-natural enrollment increase, Graduate Diploma in Education (PGDE) course. TTCs alsoupgrade academically qualified provided in-service training programs to 2,700 annualteachers without professional participants, including three one-year Diploma courses, 19 one-certification, introduce qualified year specialized courses, 15 14-week professional courses, andteachers to the new curricula and a four-month course for professional upgrading of non-graduateteaching methods, and replace teachers. In addition, six universities provided 6,400 trainees3,000 places in inadequate TTCs. with one-year Diploma-in-Education courses and 4-year Bachelor

of Arts/Science with Education courses. The pre-servicetraining programs progressed as follows:

Faculties ofTeacher Training Colleges Education

Targets Actual Actual Actual Actual1990 1986 Proiect 1992 1986 1992

CapacityNumber of TTCs/Faculties 30 27 3 30 5 6Estimated capacity _/ 30,000 25,000 3,500 28,500 5,500 6,400

OutputPrimary teachers 8,000 4,500 1,000 8,100 -- --

Non-graduate secondaryteachers 1,500 1,000 180 1,000 -- --

Graduate secondary teachersPGDE 1,200 -- 150 1,569 1,800 1,543BA/BSc (Education) -- -- -- -- 1,229 1,396

Total 10,700 5,500 1,330 10,669 3,029 2,939

a/ In 1990, TTC enrollments peaked at about 30,000, necessitating night shifts.

EDUCATIONAL RESOURCES

Obiective: Improve primary Actual: Under Loan 2685-MA, about 4,229 underprivilegedstudents' and teachers' creativity rural primary schools, 365 DERCs and the four SERCs wereby providing all primary schools equipped. A total of 7,017 schools were provided with overwith educational resource facilities, 11.8 million library books. Reference books were also providedincluding a library, adequate to 28 TTCs, IAB, DERCs and SERCs. Under Loan 2987-MA,equipment and materials and 295 DERCs located in schools were provided with new physicalphysical facilities to DERCs facilities.(later renamed Teachers' ActivityCenters) by 1990.

- 44 -

Table 3.7: PROJECT RESULTS (LOANS 2685-MA AND 2987-MA)A. Benefits (cont.)

STAFF HOUSING

Obiective: Retain qualified Actual: The 4,500 staff accommodated in Project staff quarters representteachers in hardship areas about 3.5% of all primary teachers and over one third of primary teachersby improving their living accommodated in MOE staff quarters. In 1992, there were about 9,800conditions through staff quarters accommodating 13,200 primary teachers and 5,600provision of staff quarters. quarters accommodating 6,800 secondary teachers. This represented

10% of the 129,916 primary teachers and about 9% of the 79,687secondary teachers. Project achievements were as follows:

Loan 2685-MA Loan 2987-MA TotalTaroets Actual Taroets Actual Taraets Actual

Staff quarter blocks 105 171 51 50 156 221Staff quarters units 500 1,096 290 295 790 1,391Staff accommodated 1,500 3,300 1,200 1,200 2,700 4,500

CURRICULUM

Obiective: Improve Actual: A new primary school curriculum CKBSR) was fully implementedcurricula and teaching in 1989 and all subjects of a new integrated secondary school curriculummethods, focusing on (KBSM) were implemented up to Form IV (the first year of upperreading, writing, secondary education), together with the four Form V language subjects inmathematics and 1992. The KBSM will be fully implemented in 1993, as planned. Relatedenvironment-centered textbooks were produced and distributed through a textbook loan schemeintegrated science which benefits over 90% of the primary and secondary school populationsubjects, with a student at current annual cost of M$65 million, i.e., USS 25 million equivalent)activity oriented approach. per annum for about eight million books. Teacher training programs and

teachers' guides were modified to meet the practical requirements of thenew curricula. School-based assessment testing and a national primaryschool achievement test (UPSR) were introduced. Curriculum evaluationand revision have been a continuing process carried out by MOE's EPRDwith the collaboration of the University of Science Malaysia (USM) for theKBSR, and the University of Malaya for the KBSM. An evaluation of theKBSR, carried out by USM, was completed in 1990. CDC is revising theintegrated KBSR science component, separating social from physicalsciences to alleviate difficulties in teaching integrated subjects.

TEACHERS WITH SPECIAL FUNCTIONS

Obiective: Provide Actual: The number of special function teachers increased from 5,509 insecondary schools with 1986 to 8,001 in 1 992 for a total of 1,395 secondary schools.special function teachers to Moreover, two new academic special function categories, which were nottake care of students in included in the Project Plans of Action, were added In 1992, namelyareas outside academic Senior Subject Teachers (6,997) and Senior Co-Curriculum Teachersteaching. (378). This increased the number of special function teachers to 15,376.

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Table 3 .7: PROJECT RESULTS (LOANS 2685-MA AND 2987-MA)A. Benefits (cont.)

MOE Targets ActualSDecial Function Teachers 1990 1995 1986 1992

Headmasters 1,300 1,400 1,179 1,211Senior assistants 1,100 2,100 967 1,131Afternoon supervisors 500 1,400 543 510Guidance counsellors 1,300 2,800 1,083 1,233Sports teachers 500 1,200 704 905Media specialists 300 700 351 738Librarians 500 1,300 682 1,111Welfare specialists -- 1,000 -- 1,162

Total 5,500 9,900 5,509 8,001

TEACHER-CLASS RATIOS

Obiective: Increase the Actual: In 1992, the ratios were as follows:teacher-class ratio from1.2:1 to 1.5:1 in primaryeducation, to provide All Regular Trainedteachers with sufficient Teachers Teachers a/ Teachers /time to discharge their Primarynew curriculum All schools 1.65:1 1.43:1 1.25:1assignments. Regular schools c/ 1.72:1 1.49:1 1.33:1

SecondaryAll schools 1.81:1 1.61:1 1.52:1

a/ Excluding teachers with special functions.b/ Excluding teachers without professional qualifications.c/ Excluding underenrolled schools (below 150 students).

SECONDARY TEACHER QUALIFICATIONS

Obiective: Raise Actual: The number of graduate teachers in secondary educationacademic standards in increased by 84% from 18,477 in 1986 to 33,995 in 1992, and theirsecondary education by proportion among secondary school teachers was 43%, compared toincreasing the proportion 32% in 1986.of university graduateteachers.

MOE Targets Actual1990 1995 1986 1992

Lower secondary 15% 40% 5% 23%Upper secondary 85% 100% 75% 77%

- 46 -


TRAINERS' QUALIFICATIONS

Obiective: Raise teacher training academic Actual: In 1992, out of 2,687 trainers, 2,204 werestandards by recruiting new trainers among graduates (82%, compared to 63% in 1986 and 69% ingraduates or post-secondary specialized 1989), including 6 PhDs and 326 MA degree holders.diploma holders, and upgrade the 600 Post-graduates represented 12.2% of TTC staff. Theunqualified trainers (out of the 1,600 remaining non-graduates were attending one-yeartrainers) to post-secondary qualifications. specialized in-service courses while six of them were

pursuing first degree courses and 48 post-graduateprograms (3 PhDs and 45 MAs) in universities. Newtrainers are recruited among graduates.

OVERCROWDED CLASSES

Obiective: Improve working conditions in Actual: In 1 992, the number of overcrowded classesthe classroom by reducing the number of and their proportion in the total number of classes wereovercrowded classes so that class size does as follows:not exceed 45 in 1990 and 40 in 1995.

National 19921986 1992 Pen. Mal. Sabah Sarawak

Number % Number % Number % Number % Number %PrimaryClasses of 40+ 22,432 33 23,194 29 18,894 30 2,468 28 1,832 22Classes of 45 + 6,000 10 9,004 11 6,379 10 1,426 16 1,199 15

SecondaryClasses of 40+ 8,558 23 6,082 14 4,482 13 1,040 33 560 15Classes of 45 + 1,600 4 1,239 3 687 2 471 15 81 2

Note: Pen. Mal. = Peninsular Malaysia

DOUBLE SHIFTING

Obiective: Reduce double shifting Actual: In 1986 and 1992, the proportions of schoolswherever it restricts instruction time and and classes practicing double shifting were as follows:generates commuting hardships.

Primary Education Secondary EducationNational 1992 National 1992

1986 1992 Pen. Sab. Sar. 1986 1992 Pen. Sab. Sar.Schools

Number 938 1,035 857 145 33 711 614 494 74 46% of total 14 15 18 15 3 58 44 44 52 35

ClassesNumber 11,260 13,183 11,552 1,385 246 11,750 10,492 8,539 1,145 808% of total 17 17 19 16 3 32 25 24 36 21

Note: Pen. = Peninsular Malaysia; Sab. = Sabah; Sar. = Sarawak

- 47 -


II. EFFICIENCY OF EDUCATIONAL MANAGEMENT

STAFF DEVELOPMENT PROGRAMS

Obiectives: Fill urgently needed key positions at Actual: Project achievements are as follows:all managerial levels from MOE to schools withadequately trained professionals.

Loan 2685-MA Loan 2987-MA TotalProarams D/ Taraets Actual Taraets Actual Taroets Actual

AbroadMA degrees 41 9 17 17 58 26PhD degrees 0 1 -- -- 0 1Short-Term courses 100 175 -- -- 100 175

Sub-total 141 185 17 17 158 202

In-countryShort courses b/ 400 731 800 1,444 1,200 2,175Specialist courses c/ 0 664 6,600 15,242 6,600 15,906Training Module

Development Program 0 124 -- -- 0 124MA degrees 0 75 -- -- 0 75Advanced diplomas 0 1 -- -- 0 1

Sub-total 400 1,595 7,400 16,686 7,800 18,281

Total 541 1,780 7,417 16,703 7,958 18,483

A/ The above training programs included the following topics: educational development;planning; financing and management; policy implementation and evaluation;administration and supervision; computers in information systems; curriculumdevelopment, evaluation and management; research methodology and evaluation;measurement and testing; education methodology: remedial education; computers ineducation; management of educational resources; book production; educationaltechnology production and management; community education; and peer groupfacilitator skills.

b/ Includes school principals' courses.r/ Includes outreach programs for advisors, teacher trainers, master teachers and resource

staff down to school level under Loan 2987-MA.

STUDIES

All nine planned studies were completed (Table 3.4). Their outcomes are described in Table 3.7B.

- 48 -


COST-EFFICIENCY MEASURES

Obiectives: (il Consolidate the 2,400 Actual: The above measures could not beunderenrolled schools to bring up their average successfully implemented: (i} the number ofclass size from 18 in 1986 to 20 in 1990 and underenrolled schools increased to about 2,500 and24 in 1995; (ii) expand multigrade teaching so their average class size was 15.5, below the 1986that 60% of these underenrolled schools figure; (b) multigrade teaching was practiced In onlypractice it in 1 990 and all of them in 1995; and 738 schools (29% of all underenrolled schools); and(iii) implement designs and standards of reduced more cost-efficient designs for small classclassroom size (600 sq. ft.) for classes below enrollments were used in only 23 schools. In40 students. addition, no measures have been envisaged to

reduce the overly high teacher-class ratio.

MONITORING AND EVALUATION

Obiective: Develop monitoring and evaluation Actual: EPRD developed an adequate statisticalof the quality and efficiency of education by collection and processing system which enabled Itestablishing procedures and indicators to assess to produce high quality annual evaluation reports,annual progress in the provision of educational including national examinations results andinputs and in student achievement, and statistical yearbooks. Although this system couldproducing annual evaluation reports on the be further improved, it provides the data required forquality of education in conjunction with a planning, decision making and policy Implementationstatistical report. monitoring, as expected.

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III. ACCESS TO BETTER EDUCATION

Obiectives: Assist in: (i) maintaining universal Actual: Project achievements in construction ofprimary education; (ii) expanding lower physical facilities and sector coverage are given insecondary education to reach an enrollment the following two tables:ratio of 92% in 1990 with a view to achievinguniversal lower secondary education in 1995;{iii) alleviating critical overcrowding of schoolfacilities and double shifting; and (iv) providingboarding facilities to students who otherwisecould not have access to secondary education.

Loan 2685-MA Loan 2987-MA TotalTaroets Actual Taraets Actual Taroets Actual

Primary EducationSchools 260 337 240 234 500 571Classrooms 2,200 3,070 2,090 2,071 4,290 5,141Places 92,000 122,800 84,000 82,800 174,000 205,600Beneficiaries a/ 120,000 142,800 100,000 96,300 220,000 239,100- % of total enrollments 5 5.4 4 3.7 9 9.1

Secondary EducationSchools 70 104 150 152 217 256Classrooms 1,100 1,556 2,320 2,331 3,420 3,887Places 40,000 62,200 93,000 93,200 133,000 155,400Beneficiaries a/ 60,000 82,900 110,000 124,300 170,000 207,200- % of total enrollments 4 5.8 7 8.7 11 14.5

TotalSchools 330 441 390 386 720 827Classrooms 3,300 4,626 4,410 4,402 7,710 9,028Places 132,000 185,000 175,000 176,000 307,000 361,000Beneficiaries 180,000 225,700 210,000 220,600 390,000 446,300- % of total enrollments 5 5.6 5 5.4 10 11.1

BoardingBoarding units 24 32 16 16 40 48Boarders 4,700 5,900 2,800 2,840 7,500 8,740- % of secondary boarders 3 4 2 2 5 6

A/ Taking into account estimated double shifting.

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Primary Education Secondary EducationTarget Actual Target Actual1990 1986 1992 1990 1986 1992

Enrollments (in thousands)Primary -- 2,233 -- 2,500 2,641 --

Lower secondary -- -- -- 1,000 935 983Upper secondary -- -- -- 500 366 422Total Secondary -- -- -- 1,500 1,301 1,425

Enrollment ratiosPrimary 100% 98% -- 98% --

Lower secondary -- -- -- 92% 87% 82%Upper secondary -- -- -- 58% 48% 58%Total Secondary -- -- -- 77% 72% 73%

Classroom-student ratios il 1:40 1:39 _l 1:52 1:44- number of districts below NA I/ Al 39 24 DI 56 43

Classroom-class ratios DI 84% 85% DI 70% 75%- number of districts below NA gl DI 51 35 57 48

Number of boarders c/ 50,000 51,400 rI 132,000 159,600- as % of total enrollments rl 2 2 Q/ 10 11

A/ To alleviate acute shortages of facilities and subsequent critical overcrowding and doubleshifting, improve classroom-student and classroom-class ratios, giving priority to the mostunderprivileged districts below national average ratios.

k/ NA = national average: out of 112 districts in 1986 and 113 districts in 1992.Q/ Provide boarding facilities to students who otherwise could not have access to education;

however, the number of boarders should remain minimal in primary education and shouldnot exceed 10% of total secondary enrollments.

- 51 -

Table 3.7: PROJECT RESULTSB. National Examination Results

PRIMARY SCHOOL ACHIEVEMENT TEST (UPSR) a/

Type of School b/ Malay Chinese TamilYear '89 '90 '91 '92 '89 '90 '91 '92 '89 '90 '91 '92

National Language c/Comprehension 70 85 76 76 68 62 54 50 54 48 41 34Writing 65 81 72 73 37 34 33 32 23 27 19 17

English c/ 63 53 53 53 69 73 69 70 57 63 51 56

Mathematics 75 57 60 61 92 89 87 87 68 48 50 56

Chinese/Tamil LanguageComprehension - - - - 83 79 77 81 76 74 74 75Writing - - - - 63 76 75 76 56 66 53 53

LOWER SECONDARY SCHOOL CERTIFICATE (SRP) d/

Year 1988 1989 1990 1991 1992

National average 69 69 69 77 78

UPPER SECONDARY SCHOOL CERTIFICATE (SPM) e/

Year 1988 1989 1990 1991 1992

National average 73 77 72 71 72

_/ Percentage of students achieving excellent, good or satisfactory mastery; the KBSRcovered the full six-year cycle in 1 989.

b/ By medium of instruction.

q/ The tests in National Language and English for National Schools (Malay-medium)differ from those for the National-Type Schools (Chinese- and Tamil-medium)because they follow a different syllabus in these subjects.

d/ Percentage of passes; 1992 was the first year that the KBSM covered the fullthree-year lower secondary cycle.

_/ The KBSM will cover the full two-year upper secondary cycle in 1993.

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Table 3.7: PROJECT RESULTS (LOAN 2685-MA)C. Studies

Puroose of Studies as Defined at Appraisal. The Project was to support: (a) research on major issuesaffecting the quality, recurrent and investment cost efficiency, and equity in education--namely teachers'attributes and effectiveness; the management of school facilities; geographic school distribution in EastMalaysia (Sabah and Sarawak); the effects of educational inputs and socio-economic environment onstudents' achievement and occupational opportunities; and education as a factor of national integration;and (b) evaluation of major tools and outcomes of the education system--namely employment oftechnical and vocational graduates; production, distribution and utilization of educational media andtextbooks; and educational evaluation and testing in schools. Studies were to be assessed on the basisof their potential contribution to policy making, planning and monitoring of program objectives andachievements. Five research and four evaluation studies on the above topics were identified in the StaffAppraisal Report.

Status. The nine studies were carried out by major universities (Table 3.4), namely the University ofScience (2 studies), the University of Agriculture (2 studies), the University of Malaya (2 studies), theNational University (one study), and the University of Technology (one study). The MOE's EPRD carriedout the school mapping exercise in East Malaysia.

Results of Studies. The main objective of the studies as a whole was to establish a base for continuedmonitoring and assessment of the major sectoral issues. A subsidiary objective was to test educationalresearch capabilities in the country. The degree to which the studies successfully addressed the specificissues at stake, and provided reliable inputs to the MOE and the Bank to guide subsequent reforms andlending, was variable.

(a) The study on teachers collected basic information on teacher profiles, attitudes, motivation,satisfaction and perceptions as to effective teaching. It provided valid information on the stillprevailing teacher-centered approach, deficient classroom management and prevalence ofinformation questions and rote learning over inductive/deductive critical reasoning and higher levelthinking skills. This corroborated the findings on the difficulties to implement the new curricula andhelped specify changes to be brought to teacher training and curricula themselves, which arecurrently under review.

(b) The study on school facilities focused on the quantity-quality dilemma in a rapidly developingsystem but did not tackle the issue of their management, as originally expected. It indicated that:inadequate designs and materials were often utilized for urgently needed large-scale new schoolconstruction; many schools badly needed repair or even replacement due to double session andoverloaded classes; maintenance funds were insufficient; there was a severe shortage of specializedrooms for counseling, remedial teaching and computer education; sick bays, clinics, toilets, staffquarters and hostels were usually insufficient and in suboptimal conditions; education resourcecenters were generally underutilized because they were inconveniently located and insufficientlyequipped, and regulations discouraged the use of their resources; and furniture, procured centrally,was of poor quality. The above points and the recommendation that rehabilitation of existingschools be considered as seriously as new school construction were taken into consideration whenthe Third Primary and Secondary Education Sector Project was prepared.

(c) The school maooino exercise was of high quality and provided detailed information on theavailability, location and access of educational facilities, including teacher quarters and boarding, inSabah and Sarawak, two of the most disadvantaged states in Malaysia. The study led to a preciseassessment of the need for schools and related facilities, linked to enrollment growth, andrecommendations on the priority for future investment in rural areas, school size, consolidation ofsmall schools and related transportation needs, and multigrade teaching.

- 53 -

Table 3.7: PROJECT RESULTS (LOAN 2685-MA)C. Studies (cont.)

Results of Studies (cont.)

(d) The study on educational inDuts, socioeconomic environment and student achievement and iobopportunities was the best designed study, using primary data and sophisticated statisticaltechniques. The major findings were that education was the most important criterion ofoccupational status, and social class was more important to educational attainment than ethnicity,despite ethnically related determinants of poverty. Subsidiary findings were that: educationalattainment was used as a proxy for ability by employers; parental attitude to education and fathers'level of education were the most determining factors; Bumiputeras had better opportunities forinitial entry into the labor force but poor Indian students left school earlier and had comparably littleaccess to higher education; and women had lower examination scores and lower levels ofattendance in rural areas. These findings led to an important policy recommendation to continue togive priority to the poor, particularly in rural areas.

(e) The study on education as a factor of national intearation made an effort to measure conceptswhich are difficult to define operationally, such as the sense of national culture and identity. Themajor findings were that: homes exerted a stronger influence on students' attitudes than schools;the sense of a specific Malaysian culture was uncertain, while English-speaking culture was strongin urban areas; friendship patterns were strongly influenced by ethnicity and native language; withinthe curriculum, the National Language, which most non-Malay students readily use in secondaryeducation, helped national integration, as compared with history and geography which tended toleave students uninterested; and most students believed that their own culture was the best forthemselves. These findings led to policy recommendations on the desirable emphasis to be placedon attractive aspects of Malaysian culture, such as the National Language, and cautioned againstpotentially counterproductive features, such as promoting a specific religious creed.

(f) The tracer study on vocational and technical education (VTE) graduates indicated that VTEphilosophy and objectives were still perceived with indifference or unfavorably, as less prestigiousthan general academic education. This was compounded by lower admission standards, and by theunderprivileged situation of VTE in the education system, as reflected in the allocation of funds andfacilities, particularly at the secondary education level. 'However, the rapid shift to an industrialeconomy and increasingly sophisticated technology, with their financial rewards, tended togradually modify the negative attitude of the public. The study also found that VTE had not keptabreast with the recent development of industry and only Polytechnic students were offeredpractical training in industry, while students in secondary technical and vocational schools were not.These findings led to the following recommendations endorsed by employers, instructors andstudents: VTE should continue to be provided from upper secondary IGrade 10) onwards, andpreparation to the modern world of work should be reinforced in the lower secondary curriculum;VTE should produce graduates with general, versatile, creative skills and a sense of discipline, whileproviding specific skills should be the responsibility of employers; VTE should provide an appropriatebalance between theoretical and practical shop-floor training conducive to positive labor marketentry behavior, and more business courses should be incorporated in VTE to prepare graduates forentrepreneurship; this would require raising admission standards for motivated students andproviding avenues for advancement to higher levels of education for VTE graduates, while lessacademically able students could continue to pursue skills-oriented training; a more comprehensiveevaluation method should assess leadership qualities and independence for work; employers shouldbe involved in VTE curriculum planning and development, and practical training; attachment ofinstructors in industry should be sought, to improve the quality of instruction; and councilscomprising industry leaders, VTE staff and Government officials should be established to developand improve VTE. The study and the success of Bank-financed Polytechnics, which itacknowledges, impelled the Government to approach the Bank for advice on the overall reform ofthe training system, with particular regard to secondary technical and vocational schools.

- 54 -

Table 3.7: PROJECT RESULTS (LOAN 2685-MA)C. Studies (cont.)

Results of Studies (cont.)

(g) The study on the educational media service indicated that educational media were underutilizedbecause too much attention was given to program production and not enough to implementationlogistics and staffing, and because of the lack of a strategy on the specific use of media. Thisresulted in media not being used particularly in isolated, poor rural schools, which would mostbenefit from them, for lack of workbooks, trained teachers and resource staff, suitable spaces andequipment. The findings of the study led to valid recommendations on targeting remote ruralschools by priority, getting feedback from rural areas on their specific needs, producing tapedmaterials for a majority of schools where broadcasting time does not tie in with regular instructionor which are located in shadow areas, and defining the programs that supplement or replace regularcourses, depending on the level of assistance required by teachers in specific fields. The findingsand recommendations of the study provided a precious contribution to the discussions on furtherdevelopment of distance education as a component of the Third Primary and Secondary EducationSector Project.

(h) The study on the textbook loan scheme indicated that textbooks were the most significant predictorvariable of examination results, particularly for low achievers; the books used in class were notnecessarily those provided under the scheme, which many teachers used rather as referencematerials because of their unsatisfactory quality as textbooks; and overly bureaucratic distributionprocedures and lack of storage detrimentally affected the scheme. These findings led torecommendations on the desirable inclusion of workbooks and compensation for the additional costthrough more tightly controlled students' qualification, income tax information and legal liability, andstreamlined administration. The findings of the study are relevant at a time when textbooks arebeing reviewed in light of curriculum modifications.

(i) The study on the evaluation system in Malaysian schools indicated that: national publicexaminations were universally accepted standards and criteria for summative evaluation, and wererelevant to the syllabus and consistent from year to year; there were significantly more graduates inurban schools; and high achieving schools had a significantly higher number of university-trainedteachers. As for school-based testing, the study indicated that: although most teachers weretrained in evaluation and measurement, they made up their own tests using guide books, textbookquestions and questions of previous years' public examinations; tests almost totally focused onsyllabus contents and teachers were not encouraged to test a greater variety of cognitive, affectiveand psychomotor skills, despite the guidelines of the new curricula; and success at the primaryschool leaving test overshadowed any other consideration, resulting in teachers teaching 'to thebook and to the test." These findings led to discussions on future testing in Malaysia during thepreparation of the Third Primary and Secondary Education Sector Project, with particular regard tothe current use of norm-referenced tests, possible introduction of criterion-referenced tests and theappropriate statistical treatment of tests. In this respect, the study provided interesting insightsabout the comparative validity of national public examinations and school-based testing asdeterminants of school teaching strategies and teacher training requirements.

Evaluation. Little contact took place between most researchers and MOE which eventually questionedthe relevance of the studies' approaches and the validity of their conclusions, and was reluctant torelease the findings of two of the studies before they could be edited or qualified. In most cases, themethodology left much to be desired: generally no explicit experimental design was utilized to provideanswers to specific questions; opinion surveys were used rather than direct measurements; most studiespresented raw data and statistical conclusions with little interpretation; a low level of aggregation madethe studies generally voluminous while the larger problems that engendered them remained virtuallyunanswered. However, they contributed to giving greater attention to major sectoral issues.

- 55 -

Table 3,8A: COMPLIANCE WITH LOAN COVENANTS (LOAN 2685-MA)

A. Loan Agreement

Reference Covenant Status/Remarks

2.02 Open and maintain for the purposes of Complied with. The Special Account(b) the project a Special Account in a fully was established at Oriental Bank in

convertible currency in a bank and on Kuala Lumpur in 1987. Initialterms and conditions satisfactory to the deposit of US$8.5 million was madeBank. on January 25, 1988.

3.03 Select, appraise and implement sub- Complied with.projects in accordance with guidelines,criteria and procedures satisfactory to theBank.

3.04 Award fellowships in accordance with Complied with.criteria and procedures satisfactory to theBank.

3.05 Monitor and evaluate, in accordance with Complied with. However, greaterperformance indicators satisfactory to the emphasis should have been placedBank: on unit cost analysis and output(a) distribution of education facilities and monitoring.resources by district; (b) education qualityand cost effectiveness; (c} level ofeducation expenditures; and (d} teachertraining for primary and secondaryeducation.

3.06 In relation to actions taken pursuant to Complied with. For practicalthe Letter of Policy and Project purposes, in order to coordinateimplementation: (a) by March 31 and supervision of both ongoing sectorSeptember 30 of each year, furnish a projects, it was agreed to adopt thereport to the Bank; (b) by October 31 of same dates for this project as for theeach year, review implementation and Second Education Sector Projectagree with the Bank on performance (Loan 2987-MA), namely:indicators and targets to be established (a) February 1 5 and September 1 5;for the following year; and (c) by October and (b) March 31 and October 31.31, 1988 conduct a mid-term reviewwith the Bank. The mid-term review of the physical

and financial implementation wasconducted in November 1988. Themid-term analysis of 1989educational achievements wascarried out in April 1989.

3.07 Carry out studies according to terms of Complied with. However, therereference satisfactory to the Bank and were difficulties in gaining directfurnish to the Bank a summary and access to university staff involved inanalysis of the findings promptly upon the studies.completion of such studies.

- 56 -

Table 3.8A: COMPLIANCE WITH LOAN COVENANTS (LOAN 2685-MA)

A. Loan Agreement (cont.)


4.01 Maintain records and accounts adequate to Complied with.(a) reflect, in accordance with sound accounting

practices, the operations, resources andexpenditures, in respect of the Project, of thedepartment or agencies responsible forcarrying out the Project.

(bJ (i) Have the accounts referred to in Complied with.paragraph (a) of this Section, includingthe Special Account for each fiscal year,audited in accordance with appropriateauditing principles consistently applied,by independent auditors acceptable to theBank.

(ii) Furnish to the Bank no later than nine Complied with. However,months after the end of each fiscal year, annual audit reports werea certified copy of the audit report by received behind schedule assaid auditors, of such scope and in such follows:detail as the Bank shall have reasonablyrequested. Calendar Year Date Received

1986 May 19881987 July 19891988 October 19901989 August 19911990 February 19921991 October 1992

The 1992 audit report was dueby September 30, 1993, buthas not been received.

(c) Ci) Maintain separate records and accounts Complied with.for expenditures made on the basis ofstatements of expenditure (SOEs).

(ii) Retain, until at least one year after the Comolied with.Bank has received the audit report for thefiscal year in which the last withdrawalfrom the Loan Account was made, allrecords evidencing such expenditures.

(iii) Enable the Bank's representatives to Complied with.examine such records.

(iv) Ensure that the audit report includes a Complied with.separate opinion on SOE accounts.

- 57 -

Table 3.8A: COMPLIANCE WITH LOAN COVENANTS (LOAN 2685-MA)

B. Supplemental Letter


Annex 1A(1) Following an analysis of past Complied with. However, objective

deficiencies, assess the new assessments were difficult to obtain.curriculum and related teachingmethods to determine whetherthey are expected to improvethe quality and efficiency ofeducation.

A(4) Reduce class size (towards a Not complied with. In primary education, themaximum of 40) and double number of overcrowded classes increased inshifting. absolute terms, particularly for classes with

enrollments above 45 students. The number ofdouble shifting classes increased in primaryeducation, particularly in Peninsular Malaysiaand Sabah, while it declined in secondaryeducation. However, the proportion of doubleshifting secondary classes remains high,particularly in Sabah.

A(6) Consolidate small, Not complied with. No significant progressuneconomical schools; improve was made in consolidating underenrolledmultigrade teaching; and schools, with class sizes averaging still 15.5implement alternative designs students. Multigrade teaching methods werefor classrooms of reduced size, introduced into teacher training curricula buti.e. below 40 students. was actually practiced in less than one-third of

the 2,500 underenrolled schools in 1992.Alternative classroom designs for small classeswere developed, but were used for only anegligible number of schools.

B(3) Make suitable sites available by Complied with. However, acquisitions startedthe time program with considerable initial delays in some States,implementation is planned to particularly in Sarawak.start.

Cli) Keep capital and recurrent costs Complied with. However, generousand areas per student construction and staffing norms and standards,reasonable. and low student-teacher ratios resulted in

capital and recurrent unit costs being higherthan in comparable countries of the world, andare rising. The share of education ingovernment expenditures steadily increased toa historically high 20.1% for recurrent and18.1% for total expenditures in 1992, ascompared with 18.4% and 16.3%,respectively, in 1 986 when the Project started.

- 58 -

Table 3.8B: COMPLIANCE WITH LOAN COVENANTS (LOAN 2987-MA)

A. Loan Agreement


2.02 Open and maintain a special account in a fully Not complied with. However,(b) convertible currency in a bank and on terms the Bank agreed with the

and conditions satisfactory to the Bank. Government that a specialaccount was not needed. Inearly 1989, the Governmentinformally requested that thiscovenant be eliminated but noofficial notification was everreceived.

3.03 Select, appraise and implement sub-projects in Complied with.accordance with guidelines, criteria andprocedures satisfactory to the Bank.

3.04 Carry out training in accordance with Comrlied with.(a) programs, schedules, staffing and facilities

satisfactory to the Bank.

lb) Award fellowships in accordance with criteria Complied with.and procedures satisfactory to the Bank.

3.05 Monitor and evaluate: (a) distribution of Complied with. However,education facilities and resources by district; greater emphasis should have(bl education quality and cost effectiveness; been placed on unit cost(c} level of education expenditures; and (d) analysis and output monitoring.teacher training for primary and secondaryeducation, in accordance with performanceindicators satisfactory to the Bank.

3.06 (a) By February 15 and September 15 of each Complied with. The mid-termyear, furnish a report to the Bank; (b) by review of the projectMarch 31 and October 31 of each year, implementation was conductedreview implementation and agree with Bank on in May 1990.performance indicators and targets to beestablished for the following year; and Ic) byMarch 31, 1990, conduct a mid-term reviewwith the Bank.

- 59 -

Table 3.8B: COMPLIANCE WITH LOAN COVENANTS (LOAN 2987-MA)

A. Loan Agreement (cont.)


4.01(a) Maintain records and accounts adequate to Complied with.

reflect, in accordance with soundaccounting practices, the operations,resources and expenditures, in respect ofthe Project, of the department or agenciesresponsible for carrying out the Project.

(bl (i) Have the accounts referred to in Comrlied with.paragraph (a) of this Section includingthe Special Account for each fiscalyear, audited in accordance withappropriate auditing principlesconsistently applied by independentauditors acceptable to the Bank.

(ii) Furnish to the Bank no later than nine Complied with. However, annualmonths after the end of each fiscal audit reports were receivedyear, a certified copy of the audit behind schedule as follows:report by said auditors, of such scopeand in such detail as the Bank shall Calendar Year Date Receivedhave reasonably requested. 1988 April 1990

1989 November 19901990 March 19921991 October 1992

The 1993 audit report was dueby September 30, 1993, but hasnot been received.

(cc) i) Maintain separate records and Complied with.accounts for expenditures made onthe basis of statements of expenditure(SOEs).

Cii) Retain, until at least one year after the Complied with.Bank has received the audit report forthe fiscal year in which the lastwithdrawal from the Loan Accountwas made, all records evidencing suchexpenditures.

(iii) Enable the Bank's representatives to Complied with.examine such records.

(iv) Ensure that the audit report includes a Comolied with.separate opinion on SOE accounts.

- 60 -

Table 3.f8B: COMPLIANCE WITH LOAN COVENANTS (LOAN 2987-MA) (cont.)

B. Supplemental Letter


Annex 1A(1) Following an analysis of past Comolied with. However, objective

deficiencies, assess the new assessments were difficult to obtain.curriculum and related teachingmethods to determine whetherthey are expected to improvethe quality and efficiency ofeducation.

AM3 Reduce class size (towards a Not complied with. In primary education,maximum of 40) and double the number of overcrowded classesshifting. increased, particularly for classes with

enrollments above 45 students. The numberof double shifting schools and classesincreased in primary education, and while itdeclined in secondary education, theproportion of double shifting secondaryschools and classes remains high.

A(5) Consolidate small, Not complied with. No significant progressuneconomical schools; improve was made in consolidating underenrolledmultigrade teaching; and schools. Multigrade teaching was practicedimplement alternative designs in less than one-third of the 2,500for classes of reduced size, i.e. underenrolled schools in 1992. Alternativebelow 40 students. classroom designs for small classes were

utilized for only 23 schools; the findings of astudy on the impact of this reduction on theteaching-learning process were not reported.

B(3) Suitable sites should be Complied with. However, acquisitionsavailable by the time program started with considerable initial delays inImplementation is planned to some States, particularly in Sarawak.start.

B(5) Per capita grants to schools Complied with. Per capita grants wereshould be increased in the 1989 increased in 1990 and 1992.budget to make up for their pasterosion, and subsequently tooffset inflation.

C(1) The capital and recurrent costs Complied with. However, currentand areas per student should be construction and staffing norms andreasonable. standards and low student-teacher ratios

resulted in capital and recurrent unit costsbeing higher than in comparable countries ofthe world, and are rising. The share ofeducation in government expendituressteadily increased to a historically high20.1% for recurrent and 18.1% for totalexpenditures in 1992.

- 61 -

Table 3,9A: BANK MISSIONS (LOAN 2685-MA)A. Identification through Appraisal

Month/ No. of No. ofMission Year Persons Staff-Days Specializations

Reconnaissance 04/83 1 2 Economist

Identification' 08/83 2 10 EconomistGeneral Educator

Preparation l 10/83 3 17 Division Chief/EconomistEconomistGeneral Educator

Preparation 11 06/84 2 20 EconomistGeneral Educator

Pre-Appraisal l 10/84 4 84 General EducatorGeneral EducatorEducation PlannerEconomist

Pre-Appraisal 11 03/85 3 21 General EducatorEconomistArchitect

Appraisal 05/85 4 84 General EducatorGeneral EducatorEconomistEducation Planner

Post-Appraisal l 10/85 4 70 Deputy Division Chief/General Educator

General EducatorArchitectOperations Assistant

Post-Appraisal ll 02/86 2 28 General EducatorArchitect

Subtotal 336

' Missions combined with other missions in the country or the region.Operational start-up and pre-negotiations discussions.

- 62 -

Table 3.9A: BANK MISSIONS (LOAN 2685-MA)B. Supervision

Month/ No. of No. of Overall ImplementationMission Year Persons Staff-Days Specializations Status Problems

Supervision

1 07/86 1 11 Architect 1

II' 10/86 1 14 General Educator 1

III 04/87 1 10 General Educator 1

IV 10/87 1 7 General Educator 1

V' 02/88 3 21 General Educator 1 C, MGeneral EducatorArchitect

VI 10/88 3 33 General Educator 1 C, M, FGeneral EducatorArchitect

VIl 11/88 1 4 Disbursement Officer

Vill' 04/89 4 36 General Educator 2 C, M T, FGeneral EducatorEconomistArchitect

IX 12/89 3 24 General Educator 2 C, M, T, FGeneral EducatorDisbursement Officer

X' 05/90 4 56 General Educator 2 C, M, T, FGeneral EducatorEducation PlannerProcurement Specialist

Annual in-depth implementation review, including review of education quality performanceindicators and statistics.

Specific review by the Disbursement Officer of problems relating to evidence of payment,SOE ceilings and reimbursement requests. No formal supervision, thus only a back-to-office report was filed.

Overall status ratings: 1 -- Problem free or minor problems; 2 -- Moderate problems

Implementation oroblems: C -- Compliance with Loan conditions; F -- Finance;M -- Management Performance; T - Technical Assistance

- 63 -

Table 3.9A: BANK MISSIONS (LOAN 2685-MA)C. Supervision (cont.) through Project Completion


Supervision(cont.)

Xl 10/90 4 28 General Educator 2 C, M, T, FGeneral EducatorEducation PlannerArchitect

Xll' 07/91 4 40 General Educator 2 M, FEducation PlannerOperations OfficerArchitect

X1il' 04/92 3 14 Operations Officer 2 M, FGeneral EducatorArchitect

Subtotal 298

Completion(PCR)

I 09/92 1 2 General Educator

11 05/93 1 11 General Educator

Total (all missions) 647

' Annual in-depth implementation review, including review of education quality performanceindicators and statistics.

Overall status ratinas: 1 -- Problem free of minor problems; 2 -- Moderate problems

Implementation problems: C -- Compliance with Loan conditions (e.g. audit reports, curriculumassessment results); F -- Finance (e.g. disbursements, special account); M -- Managementperformance (e.g. implementation delays, shortage of project management staff); T - Technicalassistance.

- 64 -

Table 3.9B: BANK MISSIONS (LOAN 2987-MA)

A. Identification through Appraisal

Month/ No. of No. ofMission Year Persons Staff-Days Specializations

Preliminary Discussions 02/86 2 4 General EducatorArchitect

Reconnaissance 10/86 1 10 General Educator

Identification 04/87 1 10 General Educator

Pre-Appraisal 08/87 4 68 General EducatorGeneral EducatorEconomistFacility Planner

Appraisal 02/88 4 72 General EducatorGeneral EducatorEconomistArchitect

B. Supervision


Supervision

1 10/88 3 21 General Educator 1ArchitectProcurement Specialist

11 03/89 3 21 General Educator 2 CGeneral EducatorEconomist

' Annual in-depth implementation review, including review of education quality performanceindicators and statistics.

Overall status ratinas: 1 -- Problem free on minor problems; 2 -- Moderate problems.

Implementation problems: C -- Compliance with Loan conditions; F -- Finance;M -- Management performance

- 65 -

Table 3.9B: BANK MISSIONS (LOANS 2987-MA)C. Supervision (cont.) through Project Completion


Supervision(cont.)

III 12/89 3 21 General Educator 2 C,M,FGeneral EducatorDisbursement Officer

IV 05/90 4 28 General Educator 2 C,M,FGeneral EducatorEducation PlannerProcurement Specialist

V 10/90 4 28 General Educator 2 C,M,FGeneral EducatorEducation PlannerArchitect

Vl 07/91 4 28 General Educator 2 C,MGeneral EducatorOperations OfficerArchitect

Vll 04/92 3 18 Operations Officer 2 MGeneral EducatorArchitect

Sub-total 165

CompletionIPCR)

I 09/92 1 2 General Educator

11 05/93 1 10 General Educator

Total (all missions) 341

Annual in-depth implementation review, including review of education quality performanceindicators and statistics.

Overall status ratinas: 1 -- Problem free on minor problems; 2 -- Moderate problems.

Imolementation Droblems: C -- Compliance with Loan conditions; F -- Finance;M -- Management performance

- 66 -

Table 3.10A: BANK STAFF INPUTS BY FISCAL YEARAND STAGE OF PROJECT CYCLE (LOAN 2685-MA)

(in staff-weeks)

------------------------------- Stage of Project Cycle --------------------------------

IBRD Appraisal Negotiations ProjectFiscal To to to CompletionYear Appraisal Negotiations Effectiveness Supervision Report Total

FY83 4.9 4.9FY84 13.0 13.0FY85 36.8 23.3 60.2FY86 2.7 41.2 8.3 2.8 55.0FY87 6.5 6.5FY88 10.4 10.4FY89 17.1 17.1FY90 14.6 14.6FY91 6.2 6.2FY92 7.8 7.8FY93 4.8 9.3 14.1FY94 1.0 1.0

Total 57.4 64.5 8.3 70.2 10.3 210.8

Table 3.10B: BANK STAFF INPUTS BY FISCAL YEARAND STAGE OF PROJECT CYCLE (LOAN 2987-MA)

(in staff-weeks)

----------------------------- Stage of Project Cycle ---------------------------------

IBRD Appraisal Negotiations ProjectFiscal To to to CompletionYear Appraisal Negotiations Effectiveness Supervision Report Total

FY86 0.4 0.4FY87 12.0 12.0FY88 35.3 22.4 7.0 64.7FY89 4.5 13.0 17.5FY90 11.4 11.4FY91 6.4 6.4FY92 7.5 7.5FY93 7.3 8.5 15.8FY94 1.0 1.0

Total 47.7 22.4 11.5 45.6 9.5 136.8

IBRD A19300R

1000 102 MALAYSIA 104°

PRIMARY AND SECONDARY EDUCATION SECTORSTUDENTS PER CLASSROOM BY DISTRICT

PRIMARY EDUCATION, 1983PENINSULAR MALAYSLA

THAILAND! / .1-own Stondard Deviations * Students

P. Langkce'&v baI <uban Padan > 2 64 - 81

t _>/TXeraps3ts_- M Q . 1 - 2 54-64

Koa Setar ,/ 0' 0- 1 44-54so *Pasir Bachok -1 - 0 34 - 44 60

Van Si a asiryPteh -2 - - 1 25 -34

Iuae 5l acan _t< -2 15 - 25TIm\ji '~2 Balaing TanahMerahBesut * Mean Value Equals 43.76

Tmrr.~ LautlZ " 1 Kuala School District Boundaries, nKulim Hulu Perak < \ Krai t _ / -- State Boundaries

Beret Dtave ~ -e'.~ t K. Terengganu _ ._gInternational Boundaries

a~)ru

) J j Ulu Kelantan ) TKerian 1 >_ > Ulu Terengganu larang

Kula Kangsar

Da:n fQC~ , , /1 > ) \. > Dungun

Kinta . Cameron

Dinding Perak _ighla _ Kuala Lipiseng *.,J Koala Lipis Jerentut Kemanan

Pra Batang

40 Hilir Padang 40-

SbakSA1 Berna Ulu Selangor:. T

f uala > Be PeTmerohnSelangor __Betn , Pka

0 20 40 60 80 100 omba

KI LOMETERS pur

Kean Uliu) Jeeu

Lunag\ o! 5 Kal Pilai'<b- 0.,>wwd t* rN W- S" -. 1. A* con* R ompin

N.$-IJlof ~/W'_ad oEf V*-f To.tlo8 0[ 80 .Serembar Jempol

N1. * DI ~ h- *co 01 / rt e Tamp n.

100. .icksoS t Tannp segamat \ ,3

DEMOCRATIC elaka U.KAMPUCHEA Mole Mening

J 'Ir,$VIET NAM Meleka T. M

PHILIPPINES 20 \ ung 20

THAILAND Batu Pahat

Kota Ttnggi

PENINSULAR ~~~~BRUNEI SabahaPENINSULAR krtQ! K li

MALAYSIA ,N MALAYSIA Pontian ahor Bahru

Sarawak r'INDONESIA,,SSINGAPORE (_ £ SUMATERRA) SINGAPORE',

~~I~,SINGAP0RE ~~~~~__ ~1020 1040I N D O N E S I A 102°I1or4°

DECEMBER 1985

IBRD A1931OR

1100 1120 1140 1160 1;80 DECnBER 98S

MALAYSA

PRIMARY AND SECONDARY EDUCATION SECTORSTUDENTS PER CLASSROOM BY DISTRICT Kudat

PRIMARY EDUCATION, 1983 i

EAST MALASA Pitas/Banggi

Stondard Deviations * Students I>- 2 98 -9140 Tuaran ar

6° 1 - 2 74 - 98 Kota Kinabalu ljt eniran

60 1 1 - 4 74-98 Penampang ana Sandakan 6

0 240-249Pp Tau-1 - O = 24 - 49 Kuala Peny *

Labuan _.? Keninga Kinabatangan

Mlll V bae Equo 4a:6 BRUNEI

School District Boundaries *

State Boundaries e \ SempornaInternational Boundaries I s Pensiangan Tawau ( Semporna

0 40 80 120 160 200 L rban

KILOMETERS 4 0

Miri/SubisBaram

intulAu

ukah ~~~~~~~~~~1160 1180Matu/Daro a _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _

DEMOCRATICSibt_ () Eelaga ,^9 ll KAMPUCHEA-(

Sarikei>> x { VIET NAM PHILIPPINES

20/ Kanowb t< 2'~- THAILAND

' Lundu c ala ulau KapitSon

u' , ,kn_ BRUNEI Sabaher ~ ~ ~ ubkMALAYSIA " '. I''

MALAYSIA

INDONESIA Sara wak I

(KALIMANTAN) .)SINGAPORE-

INDONESIA INDONESIA

1tO° 112° 114° hTsfwos {~~~~~~~~~ ~~ ~~Sumatesra) (Kalimantan)

IBRD A19305R

1 0o0 102 1I040

PRIMARY AND SECONDARY EDUCATION SECTORSTUDENTS PER CLASSROOM BY DISTRICT

SECONDARY EDUCATION, 1983PENINSULAR MALAYSIA

THAI LAND

! tsvg f- > Standard Deviations * Students

P.Langkaw! * -Pubans Padang > 2 88 - 109

P>\/\te Terasuy_- ) MQ t 1 - 2 74 - 88

Kota Setar - 1 60 - 74

6 *Pa o achok -1 - 0 45 - 60 60-

,an S i M >. r / as rP teh -2 - -1 31 - 45

Kuala a~~~~ ~ ~~ ~ ~~~~cha ( 2 17 - 31Muda+ ,j Tanah Merahh 2 = 7-3

Sp" s Md Baling Be .nt ,e * ksan Value Equils 59.70

Timur Laut i C Kuaa I S D Budre

Kulim Hulu Perak Krai School District Boundaries

Barat Daya ' < . e -- - State Boundaries

Barat Da,iya } .engganu ar International Boundaries- B hru ''

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