Report No. 5088-IS

Cost Effectiveness of Educationin the Kingdom of Lesotho

January 10, 1985

Education and Manpower Development DivisionEastem and Southern Africa Regional Office

FOR OFFICIAL USE ONLY

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Document of the World Bank

This document has a restricted distribution and may be used by recipientsonlv in the performance of their official duties. its contents may not otherwisebe dlisclosed without World Bank authorization.

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CURRENCY EQUIVALENTS (1982)

US$1.00 = Maloti (H) 1.09M1.OO = US$.92

MEASURES

1 meter (m) = 3.28 feet1 square meter (m2) = 10.76 square feet1 kilometer (km) = 0.62 mile1 square kilometer (km2) = 0.3861 square mile1 hectare (ha) 2.47 acres1 kilogram (kg) = 2.2046 pounds1 metric ton = 2.205 pounds

GLoSSARY OF ACRONYMS

APTC - Advanced Primary Teacher CertificateCBO - Central Budget Office of the Ministry of FinanceCOSC - Cambridge Overseas School CertificateCTI - Commercial Training InstituteEEC - European Economic Community--E - Institute of EducationlENS - institute of Extral-Mural StudiesIDM - Institute of Development ManagementILS - Institute for Labor StudiesISAS - Institute of Southern African Studies3C - General Secondary Junior CertificateIAC - Lesotho Agricultural CollegeLDTC - Lesotho Distance Teaching CenterLIPA - Lesotho Institute of Public AdministrationLIET - Lesotho In-Service Education for TeachersLPI - Lerotholi Polytechnic InstituteLTI - Lerotholi Technical InstituteMOE - Ministry of Education, Sports and CultureNTTC - National Teacher Training CollegeNUL - National University of LesothoPTC - Primary Teacher CertificateRSA - Republic of South AfricaSTC - (Junior) Secondary Teacher CertificateTTS - Technician Training SchoolUBLS - University of Botswana, Lesotho, and SwazilandUSAID - United States Agency for International Development

KINGDOM OF LESOTHOFISCAL YEAR

Government: April 1 - March 31University of Lesotho: July 1 - June 30

The Country LesothoThe People Mosotho (singular)

Basotho (plural)The Language Sesotho

FOR OMCIAL USE ONLY

COST EFFECTIVENESS OF EDUCATION IN LESOTHO

TABLE OF CONTENTS

BASIC DATA

SUMKARY AND RECOHKENDATIONS ............ .... .. i-vii

I. BACKGROUND .... ......... **********e**.e*******.... I

Socio-Economic Background ....... .. ................... 1Education Background and The Purpose of this Report . ...e 3

II. COST EFFECTIVENESS AT THE NATIONAL UNIVERSITY OF LESOTRO 6

Introduction ............ 6........... 6Costs ............ 7..... ........ *.*** 7

Overhead Costs ............................. * *........ 7Teaching Costs .......... ............................ 12Capital Costs ................................................. 13

Effectiveness ................... ..... 15Sectoral Needs ..................................... 16Emigration of Skilled Manpower ....................... 18

The NUL Specialized Institutes .o......................... 19Cost Recovery ...... ..... .............. 23

III RESOURCE ALLOCATION AND DECISION-MAKING IN EDUCATION 25

Role of the Ministry of Finance ........................ 25Role of the Ministry of Education ........................ 28The Decision-Making Process at NUL ...................... 29Recommendations for NUL ............. 30Higher Education Interinstitutional Cooperation ........ 35

IV COST EFFECTIVENESS AT OTHER POST-SECONDARY INSTITUTIONS 37

National Teacher Training College ................. .. ...... 37Lerotholi Polytechnic Institute ......................... 39Lesotho Agricultural College ............................ 41Lesotho Institute for Public Administration .............. 43Institute for Development Management .................... 44

V. COST EFFECTIVENESS IN PRIMARY AND SECONDARY EWDUCATION ... 46

Primary Education ............ ........................... 46Secondary Education ........ .. ...... .... o ................ 48

This report is based on a mission to Lesotho February, 1984 byMessrs. L. Wolff (Education Planner), A. Bottomley (Economist, Consultant),and F. Van Buer (Higher Education Administrator, Consultant), as well as ondata and information prepared by the Lesotho Government.

This document has a resticted distnbution and may be used by recipients only in the performance otheir ofwicial duties. Its contents mnay not otherwise be disclosed without World Bank authorization.

ANNEXES

Annex 1: Supporting Tables and Figures

Table 1: Ministry of Education Recurrent Expenditures, 1979/80-1983/84Table 2: Enrollment and Costs, NUL, 1969-1983Table 3: Estimated Unit Costs to Government of Public Education,

Eastern AfricaTable 4: Non-Departmental Costs by Component at the National University

of Lesotho, 1982-83Table 5: Departmental Costs by Component st the National University

of Lesotho, 1982-83Table 6: Number of Staff in Overhead Departments, NUL, 1983-84Table 7: Potential Savings on Non-Departmental Costs, NULTable 8: University of Lesotho, Student-Teacher Ratios, 1983-84Table 9: Academic Staff Instructional Workload NUL, 1983-84, Average

Weekly Contact HoursTable 10: Average Enrollment Per Course, NUL, 1983-84Table 11: Values of Capital, 1981 and Updated to 1984, NULTable 12: Classroom and Laboratory Utilization Usage Rates, NUL, 1983-84Table 13: Employment Status by Sex and for Total Population, Lesotho,

1975-2000Table 14: Supply and Demand for Agriculture TechniciansTable 15: Employment and Training of Basotho Science Graduates, 1967,

1980-81Table 16: Budgets for the Institutes of Extra-Mural Studies (IEMS), Labour

Studies, Southern African Studies (ISAS), and Education,1983-84

Table 17: Enrollments and Graduates at the National Teacher TrainingCollege, 1975-84

Table 18: Calculation of Student-Teacher Ratios and Unit Costs, NationalTeacher Training College, 1983-84

Table 19: Staff Requirements for National Teacher Training College,1983-84

Table 20: Enrollment, Teachers and Student-Teacher Ratios, LerotholiPolytechnic Institute, 1983-84

Table 21: Recurrent Annual Costs for Non-Salary Items, LerotholiPolytechnic Institute, 1983-84

Table 22: Placement of 1983 Graduates, Lerotholi Technical InstituteTable 23: Budget, Lesotho Agricultural College, 1983-84, and Proposed

for 1984-85Table 24: Income and Expenditures, Institute of Development Management,

1980, 1981, and 1982Table 25: Selected Courses Taught by Institute of Development Management,

1982Table 26: Population, Enrollment, and Cost Projections Based on Differing

Fertility Rates, Primary Education, 1980-2015.

Figure 1: Economic Consequences of Graduate Emigration

Annex 2: Description of the NUL's Decision-Making and Budget DevelopmentProcesses

Annex 3: Bibliography

KINGDOM OF LESOTHO

BASIC DATA - 1982

Population 1,400,000(includes an estimated 165,000 presentlyworking in the Republic of South Africa)

Population Growth Rate 2.3% p.a.

GNP per Capita US$435 equivalent

Education

Primary Education (Grades 1-7)- enrollments 278,000- ratio of enrolled to theoretical

age group (6-12) 115%Junior-Secondary Education 1/ (Grades 8-10)- enrollments 23,000- ratio of enrolled to theoretical

age group (13-15) 20.7%Senior-Secondary Education I/ (Grades 11-12)- enrollments 5,856- ratio of enrolled to theoretical

age group (16-17) 10.7%Higher Education (National University of

Lesotho and Tertiary Institutions only) 2/- enrollments 2,031- ratio of enrolled to theoretical

age group (18-22) 1.3%Literacy Rate 53Z

Education Expenditures

Government Recurrent Expenditures in Educationas a percentage of Total Recurrent Expenditures(1982/83) 16.9%

Government Capital Expeaditures in Education as apercentage of Total Capital Expenditures (1982/83) 3.6%

Government Recurrent Expenditures in Education asa percentage of GNP (1982/83) 4.6%

1/ Includes General-secondary education, teacher training and vocationaland technical education.

2/ In addition 423 students are studying abroad at the post-graduatelevel.

SUMMARY AND RECOMMENDATIONS

1. Lesotho has minimal physical resources and is heavily dependenton remittances from its labor force employed in the Republic of SouthAfrica (RSA), which constitute over 40% of GNP. Employment in the RSA isexpected to decrease and over the next twenty years Lesotho will have adifficult task of absorbing nearly 350,000 new entrants to the laborforce. In such a difficult setting, it is important for Lesotho tostrengthen and improve its education system as a means of establishing theskills, knowledge and attitudes necessary to compete for industry, commerceand other investment (paras 1.01-1.09).

2. Lesotho faces serious economic problems which mean that therecurrent budget available for education will be able to rise onlyminimally in constant terms over the next few years. It is thereforeurgent to implement cost savings and cost recovery programs. TheGovernment's policy in this respect at the primary and secondary levels iswell planned and appropriate to needs. However, the Government has notestablished a policy on the financing of higher education or otherpost-secondary institutions and therefore requested that the Group assistit in a review of costs at the National University of Lesotho (NUL) and atother institutions. The current report is a result of that request. Itreviews cost-effectiveness as well as financial management anddecision-making at NUL and at other institutions. It should be read as aconstructive attempt to strengthen the role of post-secondary education inLesotho's economic and social development. It comes at a time of increasedawareness by both Government and NUL officials of the need to control thecosts and improve the effectiveness of higher education (paras 1.10-1.19).

Cost Effectiveness at the National University of Lesotho (NUL)

3. The costs of higher education at NUL constitute 22% of theMinistry of Education's budget, while serving an enrollment of 1,133students. The unit costs at NUL are estimated at M6,411 per student,including teaching costs, overhead, and the cost of loans provided tostudents. This figure is more than 160 times the amount spent on primaryeducation. While it is comparable to other African countries with smalluniversities, it is still a major burden on the budget and therefore thecost effectiveness of NUL must be studied carefully (paras 2.01-2.04).

4. Costs of overhead and institutes in 1982-83 at NUL totalled M4.2million or more than 60% of total costs. An excessive 445 staff areemployed in overhead departments, or nearly one for every two students.NUL officials are aware of these problems and are seriously discussing waysof reducing costs of overhead. The number of staff responsible foradministration, maintenance, and residences could be significantlyreduced. A step in this direction has already been taken through reductionin staff in the Bursar's office. Maintenance includes a set of commercial*stores' selling provisions which could be turned over to the privatesector. Savings in training abroad could be made through making payments

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to staff overseas on the basis of needs, rather than as a fixed highpercentage of salary. NUL is responsible for providing housing to staff.In the short term NUL could charge more than the current 3-5% of the actualrental cost of housing, and over the long term NUL should consider nolonger accepting responsibility for providing staff housing. NUL shouldalso consider increasing residence fees, which currently cover only 40X ofcosts, and should require students to do their own laundry and cleaning.NUL should also consider turning the primary school it runs over to theGovernment or charging the full costs of the school to parents. The NULadministration recently completed an agreement with a private firm to takeover the refectory which will eliminate the past subsidy for therefectory. NUL is also similarly considering most of the cost-savingmeasures proposed in this report. The total amount of savings which couldbe made if all overhead cost-saving proposals are implemented is estimatedat M1.5 million, or about 16% of the total 1983-84 NUL budget (paras2.06-2.24).

5. The costs of the academic departments constitute only 34X oftotal NUL expenditures. However, the average in 1983-84 of 9.9 studentsper staff member is lower than world-wide averages, although comparable toother high cost small African universities. The lowest ratios (6:1 orless) were in science education, French, language and social education,African languages, theology, geography, and pharmaceutics. A review ofacademic programs shows that the number of programs has been allowed toproliferate beyond the boundaries of present needs. For example at thefourth year level, the size of most classes is less than 10:1. It istherefore appropriate to consider combining a number of smaller departmentsinto larger departments and to consider phasing out some academicprograms. In addition, the present requirement of a minimum of fourstudents per course should be increased to about eight and the practice ofteaching a course once every two years should become more generalized.Overall NUL should aim at a ratio of at least 10:1 in science faculties and12:1 in all other faculties. These ratios could be achieved throughpermitting enrollment to increase by 15% with no net increase in staff.This will be difficult to achieve since many staff members will shortlyreturn from training abroad. The total savings in academic costs would beabout 6% of the NUL budget (paras 2.25-2.35).

6. The total value of all the capital invested in NUL is estimatedat M28.7 million. This in turn converts into an annual capital cost perstudent year of M3036, which, if borrowed at current interest rates, wouldadd almost 50% to the cost per student year. Only 31% of the availableseating places are utilized on a weekly basis. This suggests that studentenrollment could be doubled to 62% of classroom capacity, a figure whichwould be attainable with careful timetabling. It might also be appropriateto partition some classrooms to handle the present small class size (paras2.36-2.43).

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7 Four institutes supported as part of NUL account for more thanM700,000 of expendi,:ures 1/. The Institute of Extra-Mural Studies (IEMS),the largest of these, provides formal and non-formal training to thecousmunity at large and has been supported by numerous donors. Since IEMSsalaries are more than twice those of other community development agencies,it is best for IENS to cut down on its grassroots activities and toconcentrate on acting as a service agency to other agencies throughtraining of trainers, providing diploma level and certificate training toclearly identified clienteles and supporting research and evaluation innon-formal education. Consideration should be given to devolving theactivities of the Institute of Labor Studies to other institutions. TheInstitute of Education has an unclear function and NUL should consider itsintegration into the Faculty of Education. The Institute of SouthernAfrican Studies has a valid role as a coordinator of economic and socialresearch on Southern Africa, but over the long run, its documentationcenter should be turned over to the library or another nationaldocumentation center to be established (paras 2.57-2.69).

8. As noted above Lesotho's main economic problem is to findproductive employment for nearly 350,000 new workers expected to enter thelabor force. It will be very difficult to absorb these into subsistenceagricultural and/or the civil service. Education at NUL must therefore bedesigned to provide to its graduates the needed entrepreneurial andorganizational ability and technical skills to be able to combine foreignexpertise and capital with low cost labor, water and power in such a way asto increase the value of agricultural and manufacturing output, as well asto provide adequate health and education services. To strengthenagriculture, it would be appropriate to establish a formal relationshipwith the Faculty of Agriculture in Swaziland to train future agriculturalentrepreneurs. In manufacturing NUL will need to strengthen its departmentof business studies and possibly introduce courses on entrepreneurship andbusiness management to all students. To produce additional engineers, NULshould enter into cooperative arrangements with other institutions. Ascivil service opportunities decrease, it is expected that additionalNUL graduates will enter secondary school teaching, thus increasing thequality of instruction at this level. Emigration of NUL graduates may growin the next few years. However, Lesotho will gain from the foreignstudents attending NUL who may remain in the country and the additionalwages gained by emigrants and remitted home will also constitute a neteconomic gain (paras .44-2.56).

9. About 86% of more than 900 Basotho students at NUL receive loanstotaling M1,801 per year. At present M350 of this amount is paid directlyto NUL to cover the partial costs of tuition and dormitories. Loanrecipients repay loans in equal installments without interest over a fiveyear period and they receive a remission of 50% if they work for theGovernment. The National Manpower Development Service (NMDS) isresponsible for selecting loan recipients and for enforcing payment (paras2.70-2.71).

11 Included as overhead in para. 4

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10. While the idea of a loan scheme is a good one, the system needsto be significantly improved in order for it to meet its objectives.Eligibility for loans should be restricted to those with economic need orfor those planning to enter certain critical occupations. This wouldreduce the number of loan recipients to at most 50% of Basotho students.Discrimination in favor of civil servants should end, and with minorexceptions all students should repay 100% of their loan. The repaymentperiod should be adjusted so that graduates pay no more than 15% of theirdisposable income p.a. and, at the same time, an interest rate of at least5% p.a. should be considered. NMDS should turn over collection efforts toanother more appropriate institution, such as a Bank or the Income TaxDivlsion. The Goverament should seek a consultant to assist in thedevelopment of an effective loan administration program. If no action istaken on these recommendations, then the loans should be turned into grantsand the amounts reduced significantly, since this would be less costly thanhaving a pretense of a loan scheme (paras 2.72-2.78).

The Decision-Making and Resource Allocation Process

11. In the Ministry of Finance, the Central Budget Office (CBO) isresponsible for developing the national budget. The CBO is not adequatelystaffed to carry out a programmatic analysis of the education budget as awhole or of the NUL submission. When reductions are required they areusually made across the board rather than selectively. The staff of theCBO requires further strengthening and the best civil servants should beencouraged to apply for these positions (paras 3.02-3.10).

12. The Ministry of Education's staff resources are similarlylimited and the review of budget requests by departments is usually done inan ad-hoc manner by the deputy permanent secretary. The Ministry actssolely as a conduit to pass through the NUL budget request. Overall theMinistry should strengthen its Planning Unit so that it is ablesystematically to analyze budget requests from its departments as well asNUL relative to national educational development objectives. In additionthe Ministry's accounting unit should be expanded and its staff furthertrained (paras 3.11-3.15)

13. The NUL's decision-making process depends on a complicated setof comm'ttees, including the University Council, the Board of Finance, theSenate, the Board of Management, and the Board of Development. TheVice-Chancellor's tenure is usually limited, and the Registrar representscontinuity at the institution. At NUL, the Development Planning Unit,presently staffed with an expatriate academic planner, a physical planner,and a counterpart academic planner, is supposed to provide managementinformation to the Vice-Chancellor's office but it has developed only arudimentary capacity in this area. On the whole, information such asstaff-student ratios, output of graduates, faculty research output, andrelative past funding are not used to make decisions on budgets. The

result has been a proliferation of small departments with uneconomicallylow enrollments. On the academic side, there is no systematic programreview and evaluation. There have been complaints of absenteeism by bothteaching staff and non-teaching staff, but in the recent past no teachingstaff member has been disciplined for absenteeism (paras 3.16-3.19).

14. In order to better manage the resources at its disposal andretain the confidence of society as a whole in its mission, NUL shouldestablish a system of scheduled periodic reviews of both the academic andnon-academic areas on a three or five year cycle. A format for review ofdepartmental programs would require information on specific programobjectives, structure, staff, student, clientele, placement and manpowerneeds, relationship to other programs, student and faculty achievements,and quality compared to other similar institutions. Such a review wouldmost probably result in consolidation of a number of departments intolarger ones, as well as decisions to phase out some programs with very lowstudent enrollments. To strengthen the program review process theDevelopment Planning Unit should expand its functions and provide moremanagement information to the University administration. On thenon-academic side NUL is taking action to implement a number ofcost-cutting proposals and is training Basotho staff to replaceexpatriates. A more efficient method of enforcing staff discipline isunder discussion. There may be also a need to reduce the excessive numberof independent Boards with formal decision-making powers. To ensure thereis no conflict of interest in the Ministry of Finance review of the NULbudget, the Permanent Secretary of the Ministry of Finance should no longersit on the NUL Finance Board. Finally, it is recommended that a committeeof NUL and other Government officials review the recommendations made inthis report and establish a phased three to five year program to implementthose recommendations found acceptable (paras 3.20-3.27).

15. To further strengthen its program, NUL should examine thefeasibility of entering into a consortium with other nearby universities.The Vice-Chancellor has taken the lead in initiating conversations oncooperation with the Universities of Botswana and Swaziland. A consortium,while it would provide some short term cost savings, would serve in thelonger run to strengthen the universities through permitting establishmentof additional functions without incurring major new costs. The consortiummanagement would have to ensure that economic benefits are equallydistributed. To further develop this idea, the three institutions shouldseek a consultant to identify the model and appropriate programs andprepare a proposal for donor funding during the formative years of theconsortium (paras. 3.28-3.35).

Other Education and Training Institutions and Levels

16. The National Teacher Training College tNTTC) is the only teachertraining institution in Lesotho. The unit costs at the NTTC are reasonablecompared to similar institutions and the unique three year program whereby

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students spend a full year of supervised teaching should be continued.There is no evidence that NTTC staff are overworked, but it would beappropriate to hire one new staff member to implement a proposed newheadmaster training program. To strengthen the institution, a new post ofvice-principal for administration should be established, teacher disciplineshould be enforced, food service should be privatized, curricula andteaching programs should be regularly reviewed, and new NTTC tutors shouldbe required to have a minimum of three years previous teaching experience(paras 4.01-4.08).

17. The Lerotholi Polytechnic Institute (LPI) consists of threeinstitutes providing technician training, vocational training, andcommercial training. The student-teacher ratios at all three institutesare generous and could be increased. The unit costs appear reasonable, inpart because expatriate salaries are not counted in the budget, andplacement of graduates is good. LPI should expand enrollment to meet labormarket needs and to increase student-teacher ratios. A new principalshould establish plans for a common core of basic courses for sharing offacilities among the three constituent institutes, and for bettercooperation with industry (paras 4.09-4.18).

18. The Lesotho Agricultural College trains agricultural techniciansand extension workers in certificate and diploma programs. It has a lowstudent-teacher ratio, relatively high unit costs, and underutilizedfacilities. Because of financial constraints, graduates have not beenhired by the Government to fill vacancies. LAC could double its enrollmentwithout an increase in costs, but curriculum would have to be revised andincentives established for graduates to successfully enter the privatesector (paras 4.19-4.25).

19. The Lesotho Institute of Public Administration (LIPA)priucipally provides introductory training to new entrants to the civilservice as well as in-service training. LIPA suffers from excessiveturnover of staff and working conditions should be improved. With thecooperation of the NUL, LIPA recently instituted a diploma program inpublic administration. However, this program should more than likely beturned over to the Institute of Development Management (IDM), which is anautonomous not-for-profit organization supported by the governments ofBotswana, Lesotho and Swaziland, by donor agencies, and by fees forcourses. IDM offers a wide range of courses in administration, management,and accounting for public and private institutions. The relatively highcosts are justified by the level and intensity of courses provided. IDMrepresents a good model for cooperation among countries and its role oftraining senior managers and administrators in both the public and privatesectors should be strengthened (paras 4.26-4.39).

20. The recurrent unit costs to the Government of primary educationare low, in part since parents and communities contribute significantamounts for school operation. MOE has been acting to improve quality in

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primary education, through provision of textbooks to be financed by bookrental fees, implementation of a low cost school construction program,upgrading untrained teachers, improving examinations, and training schoolheadmasters. The most significant opportunity for cost reduction inprimary education lies in population control, which could result in majordecreases in enrollments and therefore costs compared to projections basedon continuation of present population growth rates (paras 5.01-5.10).

21. The unit costs of secondary education to the Government are alsorelatively low because of support by student and the community and minimalschool boarding. The main area of possible savings would be through anincrease of the student-teacher ratio from 21:1 to 24:1 or 25:1. The mainissue in secondary education is its low quality, as evidenced by decliningpass rates in the Cambridge Overseas School Certificate (COSC)Examination. The MOE is planning to regularize contracting of teachersthrough a newly established Teaching Service Commission. It is alsoplanning to increase student-teacher ratios, close down excessively smallschools, provide science and other equipment to schools for a replacementfee, and introduce a program for training headmasters. Given thedecentralized nature of the education system as well as the lack of trainedMOE headquarters staff, it will require diligence, hard work, and political

ili1, as well as additional staff training and technical assistance, toimplement these policies (paras 5.11-5.21).

COST-EFFECTIVENESS OF EDUCATION IN LESOTHO

I. BACKGROUND

Socio-Economic Background

1.01 Situated in the south eastern part of the African continent, andentirely surrounded by the Republic of South Africa (RS&), the Kingdom ofLesotho is one of the smallest and least developed countries in theregion. The terrain is rugged, soil erosion is extensive and only about13% of the land is suitable for crop production; the rest can only supportlivestock (cattle, sheep, goats, pigs). The Basotho (singular, Mosotho)population, estimated at 1.4 million in 1982, is mainly rural (about 85%),ethnically homogeneous of Bantu origin, and speaks a common language,Sesotho. Most adults also speak English which is taught from the fourthgrade of primary school.

1.02 The country's economy is highly dependent on the RSA. Over halfof the male labor force (about 160,000 workers) is employed in the RSA, andtheir remittances constitute over 40% of Lesotho's GNP. The Customs Union,formed by Botswana, Lesotho, Swaziland and the RSA as the senior partner,provides over 70Z of the Government's income. Over 95% of the country'simports originate in the RSA, while its exports either end in the RSA orare transferred to the rest of the world through RSA ports.

1.03 The absence from the country of over one half of the male laborforce has far reaching effects on the country's socio-economic fabric.Although by tradition most of the males, whether absent or present,continue to be regarded as heads of family, the role of women and malechildren becomes unusually important in the domestic production process.It has been estimated. that de facto, about 65% of households are managed bywomen, while a large number of boys assist in agricultural and pastoralactivities, mainly taking care of the herds.

1.04 The large group of rural households for which workersremittances constitute a main source of income explains to a great extentthe prevailing stagnation of agricultural production and sharp decline ofthe area under cultivation (about 20% since 1950). The low returns fromfarming as compared to employment abroad have acted as a disincentive forefficient farming and induced the adoption of a low input, low return, lowrisk system of cultivation.

1.05 During the 1970's and despite the country's limited resourceendowment, Lesotho's GNP grew at an impressive average rate of 9% per annumin real terms. In the last two years, however, because of the detrimentaleffects of world recession compounded by a prolonged drought and theclosing of the only large diamond mine in the country, the rate of economicgrowth is estimated to have declined to only 3% per annum. At theprevailing exchange rate, GNP per capita in 1982 was estimated at aboutUS$435 equivalent.

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1.06 The slower expansion of the economy was accompanied byincreasing fiscal deficits. These were to a great extent financed bycommercial borrowing, the service of which is placing a heavy burden on thebudget. Although in 1982/83, there was noticeable improvement in thefiscal outcome due to a concerted effort to keep expenditures under controlthrough a freeze in Government employment and wages and reduction on publicinvestment, further improvement is urgently required.

1.07 Following the 1976 population census, a number of studies onmanpower in Lesotho have been undertaken. These have varied in scope buthave tended to emphasize particular segments of the labor force, namelythose engaged in the country's formal sector. A study recently publishedby the Bureau of Statistics based on a 1978/79 national sample survey'Migration and Manpower in Lesotho', appears to be the most comprehensive.At the time of the survey, it estimated total labor force at about 596,000,of which about 160,000 men and 11,000 women were migrant workers.

1.08 Current information on numbers of Basotho working in the RSA isavailable only for those working in the mines and who represent almost 80%of the Basotbo males in the RSA. Since 1977 their number has declined byabout 9%, and in 1982 were estimated at about 117,000. This decline isexpected to continue betause of increasing pressures to employ more blackSouth Africans in the mines and increased mechanization. The effects offurther reduction of working opportunities in the RSA will be far reachingfor Lesotho. At the same time the creation of the -homelands' in the RSAis attracting some highly qualified manpower from Lesotho.

1.09 The 1978/79 survey estimated that about 415,000 people, of whom65% were women, were working in Lesotho. In addition, some 10,000 wereunemployed. The distribution of those employed by industry and type ofwork was as follows:

Structure of Employment According to the1978/79 Survey(in 000's)

_ype of Worker ll~~ ~ ~ ~ ~ ~ ~~~~~~~~ I Uupaid

Industry Total. jSalaried ISalaried Self Family j |___ Gov't Private Employed Worker l

JAll Industries 415.0 j 23.7 36.2 120.8 234.3

I I I I I I IAgriculture, Hunting, I I I l lForestry 342.6 4.7 10.1 106.2 221.6Manufacturing, Mining, lllConstruction n 33.5 7.0 12.4 7.6 6.5Trade, Services, Other 38.9 12.0 13.7 7.0 6.2

_ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ I __ _ _ _ _ _ _ _ I _ _ _ _ _ _ _ _ I I I.

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The dominant characteristic of the country's labor force is the small sizeof the wage sector (less than 14% of the work force) and the high share ofGovernment workers within this group (40%). Almost one-half of the malesworking in Lesotho had little or no education. This was particularlyserious among those engaged in agriculture where only 2% bad completedjunior secondary education. Even of those holding managerial andprofessional positions in urban areas 23% had little or no education and anadditional 42% had not completed junior secondary education. For femaleworkers, the situation was substantially better, with over 8OZ having atleast completed primary education.

Education Background and the Purpose of this Report

1.10 Lesotho's education system is still a joint venture between theGovernment and the churches where the latter own and operate 97% of theprimary and 86% of the secondary schools. Without such a jointadministration, Lesotho would not have reached in the past, and could notmaintain now, such a high level of literacy.

1.11 The education system consists of seven years of primaryeducation, five years of secondary education (three years of juniorsecondary and two years of senior secondary) and four to six years ofhigher education. The administrative, financial, and academic control ofthe formal education system is vested in the MOE. The MOE trains andappoints teachers, administers examinations, reviews and authorizescurricula, opens and closes schools, inspects the operation of all schools,and pay teachers' salaries. Although the National University of Lesotho(NJL) is administered by an independent board, the MOE provides the bulk ofits recurrent budget and is represented on its Board of Directors.Additional special training programs are operated by the Ministries ofAgriculture, Comerce and Industry, Rural Development, Health, the PrimeMinister's office, and in the industrial sector by the Lesotho NationalDevelopment Corporation.

1.12 Planning is carried out by the Planning Unit responsible for thepreparation of long term plans and proposed policies administration of thecapital budget, preparation and review of education projects. The NationalCurriculum Development Division created in 1975 is responsible for thereview of curricula, adaptation of syllabi and training of teacners.During the last three years, with consultant assistance, they have updatedthe English, Sesotho and mathematics syllabi.

1.13 Primary education (grades 1-7) is conducted in Sesotho (thenational language) for the first four years and mainly in English in grades5 through 7. In 1982, total gross enrollments were about 278,000.General secondary education (grades 8-12) had a total enrollment of about29,000 in 1982 (60% girls), the equivalent of about 20% of the populationaged 13-17. In 1982, enrollments in vocational courses were about 1,600 ofwhich over one-third were in home economics, about one-fourth inconstruction trades, and smaller numbers in motor mechanics, electricalengineering, secretarial, business and administrative skills, etc.Agricultural education is offered at the post-primary level at six Farmer

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Training Centers (180 students in total) and, at the certificate anddiploma levels, at the Lesotho Agricultural College (LAC). Primary andjunior-secondary teacher education is provided by the National TeacherTraining College (NTTC), which enrolled 1,072 students in 1983-84. Seniorsecondary teacher education is the responsibility of the Faculty ofEducation at NUL. Non-formal education courses are provided by the MOEthrough the Lesotho Distance Teaching Center (LDTC) and by four otherMinistries (Agriculture, Health, Interior and Rural Development). A schoolof accountancy established in 1980 with Irish Technical Assistance has beenoffering accountancy training ;o about 100 full-time and another 60part-time trainees. Business and management certificate and short termcourses in bookkeeping and the management of cooperatives are provided bythe NUL's Institute of Extra-Mural Studies (IEMS).

1.14 The National University of Lesotho (NUL) offers courses ineducation, humanities, natural sciences, social sciences, and law. In1982/83, NUL enrolled 935 Basotho and 198 foreign students (total of 1,133students) attending degree, diploma and other post-secondary programs. Theroots of the NUL go back to 1945 when a Catholic University College,subsequently named Pius XII University College, was founded at Roma, about34 kilometers from Maseru. In 1964 the college was replaced by a newinstitation which, after independence, became known as the University ofBotswana, Lesotho, and Swaziland (UBLS), and which gradually establishedcampuses in Botswana and Lesotho. In 1975, the Government of Lesothodecided to establish an independent National University of Lesotho andthere are now separate universities in the three Southern Africancountries.

1.15 Traditionally, financing of education in Lesotho has been sharedby the Government, the local private sector (mainly through students' fees)and direct contributions from abroad, whether in kind or cash, made bychurches, and bilateral and multilateral agencies. Although it is notpossible to quantify the latter contributions, there are indications thatthey have declined steadily in recent years and have become only a marginalsource of financing. Of total financing in the first two categories, whichaccounted for 5.5% of GNP in 1982/83, the Government's participationrepresents about 80% of the total. This participation covers basicallyadministration expenditures of the MOE, teachers' salaries at all levels,most recurrent costs of the NUL (including student loans) and a high shareof investment in the sector. For the financing of the latter, theGovernment relies heavily on grants and credits from abroad channelledthrough the budget.

1.16 Of the MOE recurrent expenditures in education, averaging about20% of total Government recurrent expenditures in recent years (Table 1),the share of primary education (including the inspectorate) has remainedrelatively stable at about 42% of the total. The share of post-primaryeducation (including LTI and NTTC) rose sharply from about 28Z in 1979/80and has now stabilized at about 32% of the total. For these two levels ofeducation virtually all Government financing is carried out through theMOE. For the NUL, however, the identified share of 22% of the recurrentbudget of the MOE understates the Government's contribution to that level,

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since student loans, the repayment of which is doubtful and which areoutside the MOE's budget, add another 3% to the Government contribution tothe financing of NUL, for a total of 25X of the recurrent education budget.

1.17 In 1982/83, the recurrent unit costs per student to theGovernment of primary education has been estimated at M39, for generalsecondary education at M254 and for the University at M6,411. For primaryand secondary education, these costs are among the lowest in Eastern andSouthern Africa, while for higher education they are higher than elevencountries in the region but lower than Zimbabwe, Tanzania, and Botswana(Table 3). If the estimated local private contributions used for thefinancing of recurrent expenditures are added to the costs to theGovernment, the unit costs for primary and secondary education would be M45and M337. From a financial as well as from an equity point of view, thehigh cost and the extremely high share of the Government's financing ofhigher education is a matter of concern. While in primary and secondaryeducation all studencs pay feesl/ which cover most expenditures outsideteachers' salaries (including some investment expenditures) in theUniversity, only a small number of students who are not included in theGovernment's bursary program pay for part of the cost of their education.In 1982/83, their contribution covered only 1.5Z of the total recurrentexpenditures of the University.

1.18 The present fiscal constraints are not expected to ease in theshort term, and therefore the total recurrent budget for education winhave to remain constant in real terms during the next three to four years.Thereafter, modest annual increases in resources can be expected. Thus ithas become of extreme urgency to implement cost savings and cost recoveryprograms. The Government has established a program to rationalize thedeployment of teachers in secondary schools as a means of reducing staffcosts per student. However, it is within the NUL and other post-secondaryinstitutions where costs appear to be out of line and where through abetter management and organization major savings can be realized. Atpresent the teacher-student ratio is low and total staff numbers, includingnon-teaching staff, almost equals the student enrollment numbers.

1.19 Because of these needs the Government requested that the Bankreview the costs and effectiveness of post-secondary education. Thisreport is essentially a response to that request. It is based on data andinformation prepared by the Lesotho Government, as well as informationgathered by a mission which visited Lesotho in February 1984. The reportreviews costs and effectiveness at KUL, at the other post-secondaryinstitutions, and in primary and secondary education. The report alsoexamines and makes recommendations on the process of financial managementand decision-making as a means of implementing cost saving measures over

1/ In primary education, depending on the school and studentgrade (1 through 7), the fees range from M5 to as much as M50per year. In secondary education, also depending on theschool, student grade (8 through 12) and the type of student(day or boarder), these range from M80 to as much as M450 peryear.

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the long run. It is hoped that this report is read as a constructiveattempt to strengthen the role of post-secondary education in Lesotho'seconomic and social development. The report is based on a three-man twoweek mission to Lesotho, as well as information generously prepared andsupplied by MOE and NUL officials.

II. COST EFFECTIVENESS AT THE NATIONAL UNIVERSITY OF LESOTRO

2.01 The discussion of the cost-effectiveness of the NUIL must beundertaken against the background in which it appropriated a total of 146.5million in 1982-83, as well as an additional M1.1 million in funds paid tostudents through a loan scheme administered by the National ManpowerDevelopment Secretarial (NMDS), which is equivalent to 25% of the educationbudget. This can be compared with an average appropriation of nationaleducation budgets by higher education as a whole in developing countries of15% in order to provide for 4.7% of the age group2/, and is also higherthan the average of 17S of the education budget in Eastern and SouthernAfrica.

2.02 The direct current costs of NUL's academic departments were N2.3nillion in 1982/83, while the overheads of the University were almost twicethis at M4.2 million. To this figure must be added the costs of studentloans, for a total per student cost of about M6,411 or US$5,898. Thisresulted in an average cost per student year over each year of the fouryear degree course for the 1,141 full-time equivalent (FTE) studentsenrolled at the University of M6,411, or US*5,898. This figure is higherthan that of the countries in Eastern and Southern Africa with theexception of Zimbabve, Tanzania and Botswana (Table 3). This annual costper student year was 28 times the 1981 per capita Gross Domestic Product(GDP) of M228 and 16 times the per capita Gross National Product (GNP) of1400, which last includes remittances from the 171,000 Basotho who work inthe Republic of South Africa (RSA). These estimates do not include theimputed annual interest and amortization charges on the capital cost of theUniversity's buildings, nor the earnings foregone by those who attend theUniversity. Overall the government spends 164 times as much for eachstudent year as is disbursed for a primary school student, which is muchhigher than the average of 50:1 in Eastern and Southern Africa. Inconstant prices NULt s unit costs have increased by 75Z since 1969 and therehave therefore been no significant economies of scale although enrollmentincreased from less than 400 to more than 1100 (see Table 2).

2.03 While these costs are high, it is generally true that countrieswhich have a very small enrollment in higher education do have costs perstudent which are well above the average. Further, high costs would betolerable if costs cannot be reduced without a concomitant reduction in thevalue to the nation of the graduates in question. On the other hand thesocial rate of return in terms of lifetime increments of earnings of

2/ Psacharopoulos, George, "iiigher Education in DevelopingCountries: A Cost Benefit Analysis", World Bank Staff WorkingPaper NO. 440, p. 23.

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graduates of the NUL is 10% compared to rates of return of 15% for primaryeducation and 31X for lower secondary education 3/; and this is at least asuggestion that Lesotho may be overspending for its higher educationoutput. These expenditures would also be tolerable if Lesotho did not facethe strong possibility of a deterioration in the already very low standardof living of its population by virtue of the fact that some 40% of the GNPcomprises the remittances of the Basotho who are employed in the RSA andwho are unlikely to continue to work there in such numbers in future. Thispotential loss may ultimately be counterbalanced by payment of waterroyalties by the RSA to Lesotho under a proposed Lesotho Highlands WaterScheme, but the scheme has not yet been approved and in any event will notprovide significant employment opportunities.

2.04 This impending problem will also have a significant effect onthe education and training provided at NUL. At present, the Governmentemploys some 90% of the NUL's Basotho graduates. By the year 2000 it willbe essential for Basotho to organise and staff private enterprises, and toconduct these in such a way as to provide employment opportunities for adomestic labour force expected to increase by 81% by the year 2000. NULwill have to provide the essential organizational and technical skills toeffect this change. The following sections, then, cover these two majorissues of costs and effectiveness.

Costs

2.05 Total NUL current costs for 1982/83 were M6.5 million. Thesecosts may be divided into overhead and other non-teaching costs and directteaching costs of the academic departments. Capital charges are alsodiscussed but they are sunk costs which have little effect on currentbudgeting decisions. As overheads are almost twice direct teaching costs,they are discussed first.

2.06 Overhead Costs. Overhead and other non-teaching costs (listedby division and type of expenditure in Table 4) totaled M4.2 million in the1982/83 academic year. This figure includes the costs of the fournon-teaching institutes and the primary school managed by NUL, whichinvolve responsibilities which are not related to full-time teaching ofpost-secondary students. Overall these costs are high. NUL authorities,aware of this problem, have been discussing various ways to reduce orcontrol these costs and action has already been taken in a number of areas.

2.07 In order of the size of the net outlays involved these costsinclude: administration, maintenance, library, localization, leased staffhousing and commuting allowances, electricity, water, and other services,special account, residences, refectory, institutes, printing, and bookstore. The number of staff in all these departments in 1983-84 was 445(Table 5). The largest number (132) was in maintenance, followed by 91 inresidences and 71 in general administration.

3/ See Newaye Gebre-ab, -Cost Benefit Analysis of Education inLesotho", Ministry of Education, November, 1983.

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2.08 Administration takes 13% of total NUL outlays. This is higherthan many higher education institutions, and compares, for example, withlZ for the University of Malawi. It is true that administrative costs asa proportion of total costs are very high for very small universities.Nevertheless, a situation in which administration appropriates 13X of aUniversity's recurrent budget should not be lightly accepted and waysshould be found of reducing it even where economies of scale are low.About two-thirds of administrative costs are for salaries and relatedexpenses (Table 4). Salaries and related expenses are primarily for theRegistrar's and the Bursar's Offices with security employment followingclose behind. Seventy one people are employed in administration (11% ofthe total NUL employment). As a consequence of a review of its personnel,the Bursar's Office reduced its staff to half of the number employedeighteen months ago, without apparent ill effect, and it is suggested thatother administration departments initiate similar reviews. The Bursar'sstaff reductions were made by not confirming probationary appointments, byrefusing leave for further schooling, and by one retirement. Whereredundant employees are identified, the Government could transfer themwithin the Lesotho public administration as a whole in place of newrecruitment.

2.09 Maintenance takes 8Z of the University's annual recurrentcosts. Salaries and personnel related expenditures take over 90% of netoutlays of M513,000 and 132 staff were employed. Maintenance isresponsible for "sales' of M234,000 for gas, wood, coal, fittings and partsof all kinds. Most of which are to other departments of the University andreappear again as costs to these departments. Plans for privatizing somemaintenance costs are currently under consideration and should beimplemented. A savings of more than M100,000 can be made throughprivatizing the "stores" as well as the "garage' where the Universitytransport fleet is repaired and maintained. It might be possible to offerto maintenance staff lump sums and other financial inducements to leave theUniversity's service. Personnel reported to be interested in such anarrangement might open nearby private shops or repair facilities to meetNUL's needs for these services at significantly lower costs than atpresent.

2.10 Library costs were 62 of total University costs in 1982/83, ofwhich about half were in staff salaries. Only M91,000 a year in 1982/83was budgeted for book purchase. This excessively low figure was raised toM185,000 in 1983/84, which will increase this part of the annualexpenditure from about M80 per student to about M162 per student. Thelibrary appears to have an adequate but not excessive number of staff andno substantial economies are recommended. A computerized check-out systemwould probably not be cost efficient because of relatively low wages.

2.11 Localization and special accounts together also total 6% of theUniversity's annual outlays. Localization comprised training abroad forsome 56 members of staff in 1982/83 and amounted to M470,000 per year.This program is essential for university development and will result inlong term savings through the replacement of more expensive expatriates bylocal staff. However, significant savings could be made in the cost of the

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program. In 1982-83 married staff members received 100% of theirUniversity salary in the first year and 75% thereafter, providing thattheir application to study abroad had been cleared by the LocalizationTraining Board. In January 1984 NUL decided to reduce the support figurefor current staff pursuing further degrees to 70X in the first year and 80%thereafter, but to keep the same rates for new staff being trained toreplace expatriates. It would be appropriate to consider providingstipends based on dependents' needs, especially since the traineeis improving his own qualifications when he trains abroad and his scope foremployment is enhanced in consequence. This could save the Universityabout M100,000 a year.

2.12 Housing and commuting allowances also amount to 6% of totalcosts. NUL does not own a sufficient number of dwellings to lodge itseligible staff and it must in consequence rent forty-seven houses in Maseruat a total cost of M294,000 a year. It also performs a good many repairson these houses as well. Further, because Maseru is thirty-five kilometersfrom the Campus at Roma, the University pays an associated commutingallowance of M131 per month to those who must make this journey. TheUniversity proposes, in consequence, to borrow M1,785,000 from an externallending agency in order to provide a fund for housing loans to staffmembers. The proposal is for an average loan of M22,310 at a rate ofinterest of 11%. With the University simply acting as guarantor of theloan, there would be a savings of almost all of the annual costs of leasedaccommodation. Moreover, since the staff member would be free to build hisown house in Roma under the loan scheme, then the M135 per month commutingallowance would no longer be required, with a total saving of aroundM370,000 a year. While this housing loan scheme is appropriate from NUL'spoint of view, it would be best to integrate it into a national housingscheme so that NUL staff are not the only ones to benefit.

2.13 The NUL Administration is also proposing that a further 52houses and apartments be built on campus at a cost of approximatelyM1,300,000. This would be financed through the M300,000 annual floatbetween receipts and expenditures in the Uaiversity's accounts. The resultwould be to eliminate rental of the 47 houses in Maseru. Such a proposalrequires approval by the University's governing board as well as by theMlnister of Finance. The potential savings on this proposal is estimatedat M370,000 a year against the once and for all outlay of M1,500,000.

2.14 Overall it is appropriate over the long run for NUL no longer toaccept responsibility for providing staff housing. As an alternative it isappropriate to elevate on-and off-campus rents to an economic level so asto reduce the current annual average subsidy per unit of M6,375. Thiswould increase revenues by N1,325,000 a year, or 22% of the University'sannual outlays. University staff now pay only about 3 to 5% of the totalannual cost of the rent on leased houses, or on the imputed interest plusamortization and maintenance charges on those houses which the Universityalready owns. Therefore such a policy would result in a net decrease insalary plus benefits, and additional compensation would be needed to offsetthis loss. Nevertheless the total annual emoluments offered to foreign

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staff would then look more attractive in money terms and local staff wouldalso be given the strongest of inducements to borrow in order to buy theirown houses. Expatriate rental allowances might be negotiated as aid fromthe countries from which the foreign lecturers come.

2.15 Electricity, water, and other services covering 5% of costs arenot amenable to large reductions. Indeed, the prospect is rather for anincrease in capital expenditure for needed expansion in the sewage, watersupply, drainage and street lighting systems. Because of the way in whichthe electricity tariff is calculated by ESCOM, the South African Companywhich supplies Lesotho with energy, it is particularly important to keepthe peak hour consumption down. As a step in this direction the Universityhas installed a load-shedding device under Canadian aid and CIDA willprovide an electrical engineer to provide future supervision and furthersuggestions on ways of saving electricity.

2.16 Expatriate staff are expensive and have to be provided withaccommodation and regular journeys home for themselves and their familiesevery two years. These passages comprise over 90% of the Special Accountcost of M320,000 which is equivalent to 5Z of total costs. The Universityis considering imposing APEX-type ticketing requirements on these passagesas a means of reducing costs which might result in significant savings.Study leave of local staff is normally externally funded. Funding withlocal funds should continue to be kept to minimum and based on approvedresearch proposals.

2.17 The net cost to NUL of student residences is M274,000 a year.M250 of the Government loans of M1,801 a year to Basotho students istransferred to the University to pay their residence fees, whereas theactual cost of running the residences is M700-MBOO a year for eachoccupier. The students not only get all of their residence cleaning andlaundry done for them, but also their personal laundry as well. There isno clear reason why students should have their personal laundry done forthem. It may therefore be possible to allow many of the 91 people who areemployed in the residences to decline through natural wastage, transfer orearly retirement.

2.18 At the same time, the administration is considering a proposalto double the residence fee. This proposal should be implemented since itwould encourage the establishment of off-campus residences, with consequentsavings in residence staff and the need for new buildings as enrollmentincreases. Residence fee increases might 'have to be coupled withcompensatory increases in loan funds; however, as proposed in para. 2.68,these loans should be made available solely on a needs basis and thereforean increase in residence fees would result in a net budgetary savings.

2.19 The refectory had an annual net expenditure of M271,690 in1982/83, or 5X of the University's annual net outlay. However, the grossoutlay on the refectory was considerably larger at more than M1.0 million(see table 2), and NUL received about M770,000 in fees through the loanscheme and payments by donors. Of this gross outlay on the refectory, byfar the largest proportion was for material supplies, with food alone being

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M720,000 or 12Z of the total University annual running costs. In 1983-84NUL introduced a cash payment system for students, and problems ofpilferage and loss of food were reduced. For a long term solution, NUL hascompleted negotiations with a privately-owned catering company to take overthe operation of the refectory. The company pays no rent but will have tomake a profit on its operations, based on charging a total of 1N3.85 forthree meals per day, which is equivalent to the M955 provided in the loanscheme to students for meals. Much, but not all, of the net expenditurewould be eliminated. Staff has been reduced from 53 to 21, with Most ofthe redundant staff absorbed by other support operations. There will beadditional savings on the maintenance of the refectory building as thiswill become the responsibility of the private company.

2.20 There is no reason why privatisation of the refectory shouldlead to increases in student loans unless the ultimate cost of these mealssubstantially exceeds the M955 a year against which these advances aremade. The decision to provide these funds directly to the students who nowbuy their meals with cash has resulted in declines in patronage of therefectory, which indicates that students are able to get by on theirexisting food allocation. In addition, staff salaries are not based uponan assumption that meals will be provided at a subsidized rate. At allevents, the price elasticity of demand for food services will ensure thatprices are kept down. Privatisation of the refectory is the largest singlesource of savings available to the University at an estimated M315,000 ayear.

2.21 The net costs of printing are less than M3,000 a year sincesales almost match gross outlays of M175,164. These sales are mostly toother departments of the University. The cost of photocopying comprisesthe bulk of these charges. Some 130,000 a year could be saved if chargesto outside users of printing services were to be raised and/or if theseservices were privatized.

2.22 The bookstore could also earn a further M20,000 a year byraising the cost of its services to outsiders. Privatisation might be thesource of even greater savings. In addition, the primary school wasoperated at a net cost of M65,000 in 1982-83. This school is private andreceives no government support. About 70% of the students are children ofUniversity staff. Fees for University staff were M95 per annum and foroutsiders were M250. While fees have been increased significantly over thepast few years, they still account for less than 20% of total costs. Itwould be appropriate, therefore, to consider raising fees to cover most, ifnot all of the cost of running the school. An alternative would be toshift the school to the public sector so that salaries would be paid by theMOE.

2.23 The Institutes of Extra-Mural Studies, Labor Studies, Education,and Southern African Studies are discussed elsewhere. Two of theseinstitutes have what appears to be useful functions to the University.However, consideration should be given to closing the Institutes ofEducation and of Labour Studies, at an annual savings of about M191,000,since these institutes are not meeting clearly defined functions or rolesat the university.

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2.24 The total amount of net estimated savings in overhead costs for1983-84 is about M1,479,000 as follows: (a) elimination of leased housing,M370,000; (b) full costing of primary school, x75,000; (c) privatization ofmaintenance and stores, M57,000; (d) privatization of garage, M58,500; (e)reduction in student residence staff and increase in student residencefees, N262,000; (f) salary reductions during localization training,M100,000; (g) privatization of refectory, M315,000; (h) full costing ofprinting and print shop, M30,000; (i) full costing of books at bookstores,M20,000; (j) closing of Institutes of Education and Labour Studies,M191,000 (see Table 7 for details). This figure is equivalent to about 16%of NUL's total net expenditures for 1983-84. As of late 1984,privatization of the refectory had been achieved. In addition, theAdministration was requesting authority to construct on-campus housing withthe aid of the 'float' as a means of eliminating its leased housing costs.Discussions have been underway on many other items with the exception ofthe Institutes. University authorities appear to be committed toprivatization wherever possible as well as to reducing staff formaintenance and other services. For all these items it is essential thattheir feasibility be reviewed and action taken immediately whereappropriate.

2.25 Teaching Costs. The costs of the academic departments (Table 5)comprise only 34% of total university outlays. This percentage iscomparable to other small residential African universities. For exampleacademic costs in the University of Malawi are also only 34% of totalcosts and at the University of Dar es Salaam are 38%. In comparisonacademic costs in most North American and Europ an universities are usuallyaround two-thirds of total costs. Nonetheless the academic departments canmake significant savings in their costs and as a result in NUL's overallcosts through increasing their student-teacher ratios. The ratios for1982-83 were calculated at an average of 8.6;1. However, this figureincludes about 15 staff on study leave. Based on actual numbers of staffon campus the ratio was 9.9:1 in 1983-84. As detailed in Table 9, theseratios varied significantly by Department, with the lowest ratios in French(3:1); theology (3:1); science education (3:1); history (4:1);pharmaceutics (4:1); geography (5:1); African languages (6:1); and languageand social education (6:1). The ratios in these departments are clearlyuneconomic and hard decisions need to be taken to close or merge certain ofthese departments.

2.26 The student-teacher ratios by faculty are: education 7:1;science 9:1; humanities 9:1; law 12:1; and social science 13:1. Theseratios should be increased to at least 12:1 in all faculties exceptscience, where the ratio could be increased to 10:1. This would mean anaverage student-teacher ratio of 11.4:1, and would result in a savings of15% over the present ratio, or conversely an increase of 15% in the numberof students served. A policy on increasing student-teacher ratios willhave to take into account the fact that many more staff are being trainedabroad. Places will have to be found for most of this staff withoutincreasing overall faculty numbers.

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2.27 As departmental costs comprise only 34% of total outlays, anincrease in student-teacher ratios would mean that the overall Universitycosts would fall by about 5%. However, housing costs for academic staff,which are included under overheads, could be included in these savings,with the result that the percentage of possible savings would rise to about6%. It might be argued that a reduction in the staff-student ratio wouldresult in a deterioration in the quality of teaching. But during largelecture classes there is usually a minimum of intezchange between staffand students. There might be some decline in attention to students inlaboratory and tutorial classes but, with the exceptions of law, businessstudies, and African development, these classes are already small.

2.28 A review of NUL's academic programs shows that at the fourth yearlevel NUL offers a total of 142 courses with an average enrollment of 15(Table 10). If law, business studies, public administration, educationfoundations, and language education are omitted, then the average isreduced to less than 10. A minimum number of students in a class is morethan likely necessary for an optimal education/learning process and overlysmall class enrollments may in fact hinder a quality education rather thanenhance it.

2.29 The average number of teacher contact hours per week is 11.5,including lectures, tutorials, and practicals (Table 9). This figurevaries greatly among departments. The average number of contact hours inbusiness administration is 31.5, which is much too high for effectiveteaching. The lowest numbers of contact hours are in history (6.4),English (7.0), philosophy (8.0), and pharmaceutics (8.0).

2.30 NUL has initiated a number of steps in the direction ofrestricting program development as a means of increasing student-teacherratios. For instance the physics department offers only 36 units in years3 and 4 and all students are required to take joint degrees. Arrangementshave been made for especially talented students to take their physicsdegree at the University of Galway in the United Kingdom. ThePharmaceutics program, which is a donor-supported program with lowenrollments, is being terminated at the request of the Ministry of Health.The Statistics Department offers joint degrees and functions as a servicedepartment for other departments. It is not the purpose of this report tospecify further action to revise academic programs. However it isimportant that future academic reviews keep in mind the need forcost-effective use of teaching staff and that the departments with thelowest student-teacher ratios as well as contact houzs get carefulscrutinity. In addition, it is appropriate to consider doubling thepresent requirement for a miaimum of four students per course to eight oreven more. If an excessive number of courses fall below this number, thenthe practice, already initiated in philosophy and other departments, ofteaching a course once and every two years, should become moregeneralized.

2.31 Capital Costs. Capital. costs comprise: (1) buildings, (2) thefurniture and equipment which they contain, (3) piant and machinery, (4)infrastructure such as water pipes, sewers, drains etc, and (5) value of

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the land upon which the University stands. Buildings have a 1984 value ofM22,181,000 (Table 11), based on replacement value in 1981, and upgraded bythe use of the Bloemfontain buildings contracts escalation index of the RSACentral Statistical Services. If, therefore we apply an annual capitalrecovery factor for 10% of 0.1060 we get some H2.3 million as the interestand amortization charges which must be applied against this sum over thirtyyears to give its yearly costs. If borrowed at current interest rates, theannual cost of buildings per student year would be approximately N2,062, ofwhich just under half is for academic and administrative buildings and justover a quarter each for halls of residence and staff houses. This sum,then, would add 35% to the annual current cost per student year excludingloan funds. It should be remembered, however, that the real internationalrate of return on capital in inflation adjusted terms has only been about3% in recent decades and that this is probably closer to its opportunitycost on relatively riskless investments, such as buildings, than is the 10%traditionally used. Using an opportunity cost of capital of 3% wouldreduce the annual cost of buildings per student year to about M700.

2.32 The total seating capacity for all classrooms and laboratories atthe NUL is 1,782 places for any given hour and classrooms may be occupiedin theory for a total of 45 hours a week, and laboratories for 30 hours aweek (Table 12). Thus the total number of weekly places is 69,450 of which21,326 are actually taken up, -which is only 31Z of capacity. This is dueto the fact that average classroom use is 74%, and average laboratory use57%. When the rooms are in use, only 44Z of the places are occupied. Thissuggests that classrooms are much too large for the very small class sizeof most courses. Student enrollment could be doubled and about 62% ofpotential classroom spaces would be taken up, a figure which would beattainable with careful timetabling. It might also be appropriate topartition some classrooms to handle the smaller size classes so common atpresent. Such an increase might, however, require additional water andsewage capacity and hostels.

2.33 Furniture and equipment totals M4,042,000 in terms of its 1983equivalence of the 1981 insured value (see Table 11). These items willneed replacing approximately every seven years and a capital recoveryfactor of 10% of 0.205405 has been applied. This yields an annual chargeof M830,000 which gives an annual cost per student year of M728, and addsanother 5% to the costs of educating each student.

2.34 Plant and machinery had a 1983 value of M186,000. When the 10%capital recovery factor is applied over seven years to this amount theannual value of M38,205 is reached. The cost per FTE student of M33embodies, among other things, the annual cost of vehicles which might bereplaced by mileage allowances to private car owners.

2.35 Infrastructure comprises the sewage system, water supply, roads,stormwater drainage and street lighting. The 1984 value of these was142,250,000 and when the thirty year capital recovery factor of 0.106079 at10 is applied, an annual value for infrastructure is N239,000. This, inturn, equals M209 per student year, which adds yet another 41 to the directUniversity costs of educating a student.

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2.36 The land upon which NUL stands equals 52 hectares in total. Ithas been provided by the local Chief, but his constituents continue to farmpart of it, while the rest is afforested or unusable. NUL also has theright to a greater area if it can show a need. When the Governmentappropriates land on a temporary basis it pays between H150 and M250 a yearfor its use on a one-crop-basis. This is virtually the only way in whichland of this kind can be valued annually because of the nature of thenon-urban tenure system. On the assumption that twenty hectares out of thefifty-two which make up the campus are actually used by the University,then its annual value at an average cost of M200 a hectare would be only44,000, which yields the trivial sum of M4.00 per student year.

2.37 The sum of the annualized costs of all of the capital invested inthe University and such equals M28,663,000 (Table 11). If borrowed at dhecurrent interest rates, this would convert into an annual capital cost perstudent year of H3,036, and would add 51% to the current cost per studentyear. This annualized charge is substantial. Fortunately, annual capitalcosts can be reduced in per student year terms if the surplus classroom andlaboratory space is used to avoid constructing more academic buildings asstudent enrollments grows. Theoretically the academic buildings can absorbat least twice the current student enrollment. As noted previously, thereis no need to increase teaching staff until enrollment reaches more than1,300 . In addition, as noted above (para. 2.08), there is no need toincrease administrative staff with increased enrollment. In short, themarginal cost of increasing enrollment by a minimum of 200 is close tozero.

2.38 Overall the policies proposed in this section could beimplemented over a three to five year period. This would permit gradualincreases in student enrollaent while staff is held constant. It wouldalso permit attrition and early retirement of excess overhead staff, aswell as gradual increases in fees for student residences and in rents forstaff housing. The NUL' administration has made a good start on a number ofthe policies mentioned in this report, but needs to continue to makeserious efforts to reduce costs.

Effectiveness

2.39 Lesotho's over-riding problem between now and the year 2000 is toprovide employment to its domestic labor force. According to manpowerprojections (Table 13), the domestic labour force is expected to grow from1985 to the year 2000 by 348,400, while the anticipated gain in modernsector jobs of 33,000 will not even cover the expected loss of 40,000 jobsin the RSA. The residual for agriculture and public works programmes willbe 85X of the total domestic labour force. A further 352,700 workers willhave to find their sustenance in this sector, or 90% more persons than in1985. More than likely agriculture will be unable to absorb these people.Indeed, Burke4! concludes that 'the one incontrovertible finding is thatthe agricultural sector can never hope to provide employment to the bulk ofthe rural population". During the period 1980 to 2000, according to Burke,

4/ Dr. M.B. Burke, 'The Outlook for Labour Force Growth andEmployment in Lesotho", Maseru, UNDP, 1981.

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secondary school population is expected to double from 23,500 to 57,300with gainers of the basic university entry requirement, the CambriageCertificate (COSC), expected to triple in number from 2,270 to 7,090.In consequence, Basotho university enrollment is expected to rise fromapproximately 900 in 1982183 to 2,030 in 1990 and 4,260 in the year 2000.As noted in the MOE's -Education Sector Survey", with no decrease in unitcosts, this growth will be more than double the available funds and a morelikely target would therefore be 3,000 enrollment by the year 2000, coupledwith at least a 25% decrease in constant unit costs. Given the demand forhigher education brought about by a private rate of return of 35%, it seemslikely that there will be pressure to continue enrollment growth. At thesame time, this still relatively small fractioa of the population mustprovide the leadership and skills to ameliorate possible massiveunemployment of a much increased work force.

2.40 Lesotho will have a number of resources to deal withunemployment. These include: (a) potential Government income from theroyalties on the sale of water to the RSA building up to IO00 millions ormore a year, once the Lesotho Highlands Water Project comes on stream withthe 1990's, which would be about one third of the 1981 GDP; (b) cheapunskilled labour compared to similar labour in South Africa; Cc) relativelylow cost water by South African standards; (d) low cost electric power byworld standards; Ce) efficient provision of goods through the SouthernAfrican Customs Union; (f) substantial payments from the Customs Union; (g)the availability of concessionary finance from international donors; (h)considerable current savings deposits, largely issuing from emigrantremittances; and Ci) free entry of exports to the South African CustomsUnion and to the European Economic Community, as well as concessionaryentry into the North American market.

2.41 Nonetheless, Lesotho must create the skills and human resourcesto translate these supports into action. Education at NUL must be designedto meet this challenge. NUL graduates will be most effective fromsociety's point of view if they know how to combine foreign expertise andcapital with low cost labor, water and power in such a way as to takeadvantage of free or relatively free entry to the major markets. This canonly be done if they have the entrepreneurial anra organizational ability,as well as the technical skills, by means of which: (i) peasant farmers canincrease the value of their output at the same time as they provide moreemployment; (ii) manufacturing can expand; and (iii) services, particularlyin education and health, can advance, largely on the basis of the incomeearned by the first t-wo above. It is therefore appropriate to review therole of NUL in the agricultural, manufacturing, and service sectors.

2.42 Sectoral Needs. With regard to agriculture, the demand forcertificated diploma graduates is being met by the LAC (Table 14). Infact, a surplus has already occurred and graduates of LAC diploma programsare not being employed. NUL has been discussing establishment of a degreeprogram in association with LAC. However, a superior line of action wouldbe to restore links wich the substantial Faculty of Agriculture whichalready exists at the University of Swaziland and this course of actionshould be given serious consideration, particularly in the light of the

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current failure to employ the holders of the diploma and certificates ofthe LAC in the Lesotho Government service. The first two years of thiscourse could take place at NUL and/or LAC. If some way could be found ofchannelling trained agriculturalists into the private sector, it might bepossible to establish a full program at NUL.

2.43 Manufacturing expansion is currently supported by the LesothoNational Development Corporation (LNDC) and the Basotho EnterpriseDevelopment Corporation (BEDCO). The LNDC seeks outside investors througha package of incentives which include long term financing, tax holidays,preparation of industrial sites, custom-designed factories and traininggrants. BEDCO encourages entrepreneurs and small business developmentamong the local population. It offers loans, technical assistance andrental space on its own industrial sites and loan capital has beenprovided on a grant basis by the Government of Canada. A major problemlies in the staffing of these organizations. As reported by Burke, 'Bothagencies have experienced internal difficulties with staff selection,administration and performance. The conscientious efforts of attachedexpatriates, the restaffing of certain key locally held positions and majorefforts to provide long term training with a view towards effectivelocalization have presumably benefitted staff capabilities andprofessionalism. However, much remains to be done in developing attributesalong with the -ilities to make decisions and to assume responsibility forthem. The magnitude of the task is great, especially since the cost perjob created by the LNDC is very bigh (M17,700 per job).

2.44 Now it is commonly supposed that university education inculcatesthe attitudes and knowledge needed for 'managerial talent', includingspecific knowledge in commercial law, accounting and so forth. Butuniversities, their business departments apart, are not primarilydesignated to train managers and have a larger social mission.Nonetheless, a case can be made for more lecturers in the understaffedDepartment of Business Administration through a transfer of lecturers fromcurrently overstaffed sections of the University, as well as introducingcourses on entrepreneurship and business management to all students. Itwill be particularly important that the NUL, or some other section of thehigher educational community, such as IDM, organizes so as to provideinstruction to would-be entrepreneurs and managers on how to identifyprojects which are in accordance with Lesotho's comparative advantage,obtain capita'. for enterprises, particularly concessionary internationalfinance, how to locate potential foreign joint-venture partners with boththe necessary skill and capital and how to exploit the advantageous accesswhich Lesotho enjoys to the South African, European and North Americanmarkets.

2.45 In addition to business administration, the only other academicdepartments at NUL which provide a training with a clear-cut application tomanufacturing are chemistry and pharmaceutics. If the nationalmanufacturing industry grows to any size, however, it will probably absorba number of mechanical engineers. The science courses at the NUL alreadyprovide the early stages of training for engineers of all kinds and might

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be combined with engineering faculties elsewhere in Southern Africa or inEurope and the United States. Grants from developed countries alreadyaccount for some 350 current degree course participants in engineering andit seems probable that these could be increased.

2.46 Services, including Government, will constitute the bulk of thedemand for NUL graduates. In recent yeara, services have provided 55% ofLesotho's GDP, against 30% for agriculture and 15Z for industry, of which2% only was classified as manufacturing. 72% of all Basotho sciencegraduates worked in services, while only 17% and 11% respectively foundwork in industry and manufacturing. In all, 98% of all science graduateswere employed by the public service and parastatals (see Table 15), against83% for professional and technical workers as a whole. It now seems,however, that employment of non-teaching Government graduates is likely togrow slowly and that those leaving the NUL with qualifications in arts andsocial sciences, as well as some of those in science, will feel compelledto take teaching appointments. Burke estimated the annual demand forsecondary teachers from 1980 to the year 2000 to increase from about 170 in1980-85 to 530 in 1995-2000. However, because of financial constraints,the Government is estimating that only 30% of all secondary teachers willhold NUL degrees, with the rest coming from NTTC. While up to now few NULgraduates have entered teaching, the reduction in civil service growth willuore than likely lead to greater interest in teaching.

2.47 The supply of professional health workers trained abroad fallswell below the needs. If Lesotho expands training for para-medics andcommunity health workers, then there will be a substantial need for morehealth professionals.

2.48- Education and health, then, constitute the principal source ofdemand for university graduates in the service industry. There is asufficient capacity at the NUL to provide an increased output of teachers.There is at present a proposal for the creation of a Health Faculty at theNUL. Before implementing this propnsal it is essential to review the costsof training health personnel abroad and using them to staff instructionalunits for a much larger number of para-medics, as well as to staff theadministrative hierachy which will supervise these auxiliairies. TheUniversity of Botswana is training nurses at the higher level and thereforewould be a good location for a regional Faculty of Health.

2.49 Emigration of Skilled Manpower. NUL's role as a provider oftrained human resources to Lesotho may be made more difficult because ofpossible future migration of Basotho graduates of the NUL to the RSA. Arecent study showed that eleven out of the 160 recent science graduateswere working abroad; while this is a relatively low figure it can beexpected to increase as more graduates enter the labor market. Demand forskilled persons of all kinds is currently high in the South AfricanHomelands and salaries are high. At the same time, 20% of NUL's enrollmentcomprises foreign students, many of whom are classified as refugees andsupported by the United Nations High Commission on Refugees. Most suchrefugees have fees of more than M2,000 a year paid for them by the UN and

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this may cover their marginal if not their average costs. In addition, theUN provides buildings and other subventions. If refugees remain to work inLesotho after they graduate, they may constitute a reasonable investmentfrom the national point of view.

2.50 On the other hand, when Basotho graduates leave for the RSA andelsewhere, then the measure of social costs and benefits beccmes obscure.For this reason, a short disgression into the theory of welfare economicsmay be useful. Figure 1 depicts a situation in which VMP1 represents thevalue of the marginal product (or marginal revenue product) of graduatesemployed in Lesotho, while added to it is the complement of those who workabroad as represented by VMP2.

2.51 A total number of 0-H graduates obtain employment at home at asalary of 0-A and thus appropriate a total wage revenue of OAJH, while H-Igraduates are attracted abroad by the higher salary H-C. These emigrantsearn a total income of HCEI. If they had not emigrated the supply at homewould have been S2 instead of Si and the JCEF would have been lost in wagesto Basotho nationals, which is a reduction in welfare from their point ofview. But this does not take account of -employer surplusa as representedby the triangle KAJ with emigration and KBF without. It is the fact thatthese graduates earn a surplus over and above their wage which contributestowards the wages of other, less skilled workers, as well as to rents,interest and profits, which raises a question as to the desirability ofgraduate emigration. Without emigration, graduates, a generally fortunateclass whose advantages are largely produced by the community at large, loseAJCEFB in salary, of which they are forced to transfer AJFB to the rest ofLesotho society. However, Lesotho nationals as a whole lose JCEP in incomeand any emigrant remittances which may otherwise have been provided willdisappear. If the Government's requirement that emigrants should repay100% of their subsistance and fees loan were capable of being enforced,this would help redress the balance, but society at large would still haveexpended around a further M20,000 on educating the graduate. In spite ofthis, however, the welfare issue is not easy to resolve and it narrows downto the classic question of minimum inequality versue maxiwm income forLesotho nationals as a whole.

NUL Specialized Institutes

2.52 Four institutes supported as part of NUL account for overM700,000 in expenditures, not including overheads or capital expenditures.The largest of these, the Institute for Extra-Mural Studies (IEMS), had a1983-84 budget of M392,000 and this amount is expected to increase with theopening of new IENS facilities in Maseru. The other institutes include theInstitute for Labour Studies (ILS), which is affiliated with IEMS and has abudget of M102,000, the Institute for Southern African Studies (ISAS), witha budget of M148,000 and the Institute of Education (IE), with a budget ofM87,000. The average salaries of professional staff in these institutesrange from M9,400 to M14,200 (Table 16), which is comparable to otheruniversity salaries, and is much higher than the average civil servant. Itis therefore essential to ensure that these institutes fulfill functionswhich are appropriate to a university setting and which are highlycost-effective in order to justify their relatively high costs.

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2.53 IEMS was established in 1960, principally to support communityand leadership education. In its early stages IEMS assisted inestablishing local credit unions which now serve as models for much ofAfrica. ISMS has expanded its program to include formal and non-formalopportunities in education and it is now organized in eight divisions.IEMS has attracted support from numerous agencies and institutions sinceits establishment, including USAID, MISERICOR, and the Ebert Foundation.USAID is now a major contributor to IEMS, with a program of assistancetotalling $7.2 million, including construction of a new IEMS center iuMaseru.

2.54 IEMS is in the process of establishing a budgeting system bydepartments to permit review of program costs and to compare costs withactivities of other agencies with similar mandates. However at the time ofthe mission the results of this system were not available. Despite thispaucity of data, it is still possible to review and evaluate at leasttentatively IEMS's major programs.

2.55 IEMS most successful activity, the program in business studies,enrolled a total of 222 in the diploma program and 127 in the certificateprogram for a total of 349 in 1981-82. The program is jointly managed withthe Department of Accounting and Commerce of NUL and has a long history ofattracting, retaining, and graduating students. Students pay tuition ofM120 for the first year and M135 for the second year, which roughly coversthe costs of hiring part-time lecturers. One aspect of the attraction ofthe program is that it enables students who for one reason or another havebeen unable to begin at NUL to enter as advanced students. This course hasa good track record, and provided interest is continued, there is no reasonthe program should not be continued. Enrollment is reported to havedeclined to 220 in 1983-84 more than likely because of an increase in fees,but has since stabilized.

2.56 The business training center of IEMS attempts to reach localbusinessmen through informal courses lasting one week to one month. A feeis normally charged to those who attend. This department is reported toreach as many as 5,000 small businessmen per year in programs designed toimprove management, planning and accounting but information oneffectiveness is not available. Two IEMS staff members coordinate andmanage the program, assisted by a seconded Ministry of Trade and Commercerepresentative, while the actual training program is carried out by Tradeand Commerce personnel. The staff are also involved in providing othereducational and training services to the Ministry. This arrangement isbased on the historical role of IEMS in initiating the program and alsoserves the purpose of providing flexibility and higher salaries for thesupervisors.

2.57 The part-time degree program has been suspended because of a needfor better management and coordination with academic NUL staff. With USAIDassistance, IENS is now determining the feasibility of setting up theprogram again. One proposal under discussion is to offer a diploma inadult education and communication skills to the estimated 400 civilservants as well as private agency personnel presently involved in

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community development. This proposal is worthwhile, since the skills ofthese personnel need upgrading. A method for concerned ministries andagencies to pay for staff attendance could be developed. On the otherhand, a 'liberal arts' part-time degree program is of much lower priority,since the program should focus its limited resources on practical,development oriented education. It might be more cost effective for olderpersons wishing to continue their studies at the higher education level toattend KUL on a full time basis while on leave from their agencies.

2.58 According to the 1981-82 IEMS annual report for 1981 the targetgroups for the community and leadership development program are "staff fromthe Credit Unions, extension personnel from Government ministries and fromservice organizations as well as village groups, especially in the ruralareas". The five staff members in this division are reported to reach5,000-6,000 individuals, mostly in village groups. In this activity theIEMS staff usually organize a program and either find other local officialsto teach the program or teach themselves. Numerous other communitydevelopment agencies are involved in similar activities. While IEMSarguably has better trained staff and possibly better programs, it wouldappear that the best use of its small but well paid staff would be to traintrainers (as in the proposed diploma programs), develop curriculum, andmonitor, evaluate and coordinate other efforts, rather than to workextensively at the grass roots.

2.59 The lEMS media unit currently has three full time staff memberswho prepare weekly radio broadcasts and a monthly insert in localnewspapers. It would be a good idea to transfer this activity to theLesotho Distance Teaching Center tLDTC), which has more media staff as wellas a higher quality newspaper insert. This would permit a betterconcentration of resources on the use of the media and teaching aids fornon-formal education. The unit could then act exclusively as a serviceunit for other IEMS departments and might then be combined with theevaluation unit. The IEMS evaluation unit has a staff of two and recentlycompleted studies on potential clientele for part time studies, onestablishment of a system for monitoring community development, and ontraining needs for women (done for UNICEF). Lesotho has a great need forthis type of service and it would be best to strengthen this unit as wellas to establish a coordination mechanism to divide up activities betweenthis unit and the LDTC evaluation unit.

2.60 The Institute for Labour Studies (ILS) functions as part of IEMS,although its budget is separate. The purpose of the Institute, establishedin 1977, with assistance from Denmark, is to provide non-formal training tomembers of trade unions and for migrant labor on union organization, workerresponsibilities and rights, financial management, and family care. Thenumber of staff was recently increased from two to four people who areresponsible for four departments - formal training, informal training,documentation, and research. The formal training program, begun in 1980,provides a certificate or diploma in labor studies, focussing on personneland industrial relations skills. In 1983-84, 21 students registered forthe first year of the certificate program, but only about half this numberwere confirmed in the program six months later. At present, the main

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clientele is middle level female civil servants who would probably benefitmore from the diploma in public administration offered by LIPA or from IDMcourses than from the ILS program. The second set of ILS activities isthat of motivation and training of local and of migrant workers who work inSouth African mines. This program was inactive in 1983-84 because threestaff members were abroad. However, in 1981-82, the Institute ran shortterm courses for migrant laborers in family care and savings, for tradeunion leaders in union management and organization and for extensionworkers on the role of women in development. While the objectives of theILS programs are clearly of value, the recent record has not beenencouraging. It might be better to transfer documentation and research toISAS and IEMS and training programs to the Ministry of Labour, IEMS, LIPA,and/or IDM.

2.61 Overall IEMS and ILS suffer from excessive dispersion anddilution of their activities. There is a desire to reach the grass rootsin coiuunity development and training-- but many other organizations arealready involved in these grass roots efforts and IEMS' and ILS salariesare more than twice those of other agencies, resulting in lower costeffectiveness. It is therefore appropriate to consider closing down theILS and transferring its functions to other agencies. It is alsoappropriate for IEMS to restrict its community development activities tothe concept of acting as a service agency for other agencies, includingtraining of trainers, evaluation and research. Whenever a clientele andneed is identified IENS should initiate certificate and diploma levelcourses, as in the proposed diploma in adult education. However, IENS willneed to ruthlessly close its courses as soon as its clientele is found tobe too small.

2.62 It is also essential that IEMS prepares on a regular basisestimates of total costs and of unit costs per student reached, as a meansof evaluating its programs. Fees for courses should be set so as to coverthe full cost of hiring part time teachers with individuals or agenciespaying these fees. IENS should establish agreements for Ministries andother public and private agencies to cover the costs of IEMS' upgradingprograms for agency staff. Finally NUL and IENS staff should review theirrespective programs to determine whether a portion of NUL's regular degreeprograms (e.g. business studies) could be transferred to the new IEMScenter in Maseru. IEMS staff are aware of these needs and are takingaction in these directions.

2.63 The Institute of Education (IE), established in 1976. consists offour staff members, whose role is to undertake research on education inLesotho as well as to assist in in-service training. Recently it wasagreed that the IE staff would have reduced teaching responsibilities.However in principle the faculty of education should equally be involved inbasic research and there is therefore no particular justification to reduceIE teaching duties. In Lesotho most curriculum development and training isdirectly under the MOE and therefore the IE seems to have few specificfunctions. Since the IE does not have a clearcut or valuable function, itis appropriate to consider closing it down and reassigning its staff.

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2.64 The Institute for Southern African Studies (ISAS) is responsiblefor coordinating economic, social and other research on Southern Africa andfor documenting unpublished research reports and documents. The ISAS alsoserves as an administrative base for externally funded researchersassociated temporarily with various NUL departments and faculties as wellas for seconded NUL staff undertaking research. ISAS has established anassoclate status whereby regular staff members are partially released fromteaching duties to initiate interdisciplinary research. In 1983-84, ISASreceived about M160,000 in external funding, which was in addition to itsregular M80,000 budget for its four permanent staff. In general, ISAS hasa valid coordinator's role to play in basic economic and social research.However, consideration should be given to integrating its documentationcenter into the library or a national documentation center, theestablishment of which is under discussion.

Cost Recovery

2.65 In 1983-84, 777 out of a total of 903 Basotho students at NULreceived annual loans of M1,801 per year for a total of M1,398,600. Ofthis amount M350 per year is paid directly to NUL to cover the partialcosts of tuition and boarding. The remaining M1,451 is paid directly tostudents to cover their living costs. The practice of direct payment isrecent, since previously most of these funds went directly to NUL to covercosts of the refectory. Meals are now paid on a cash basis by studentsutilizing their loan funds. By and large, any Basotho student is eligibleto receive a loan from the National Manpower Development Secretariat(NMDS). The 126 Basotho who do not receive such loans must pay H350 to NULfor tuition and boarding.

2.66 The terms of the agreement signed by loan recipients are that thestudent will work In Lesotho for at least five years and that he will repayhis loan in equal installments wit.aout interest over a five year period.If the student works for the Government, he receives a remission of 50% ofthe loan and a further 10% remission is provided to "outstanding-students. If a student chooses to work outside Lesotho, he is required torepay the full amount of the loan forthwith, although the government hasnot yet attempted to enforce this regulation. Assuming that most graduateswork for the government and that there is a discount rate of 10%, then thegovernment would expect to recapture 37% of its loan proceeds with fullrepayment and without accounting for collection costs. The NMDS isresponsible for selecting loan recipients and for enforcing repayment.However, its enforcement procedures are inefficient and in 1982/83 onlyMUO,000 was recovered although the loan scheme had been in operation since1977.

2.67 Loans can be a feasible means of providing long-term savings ofgovernment funds, without imposing undue burdens on borrowers, providedthat there are adequate safeguards for those with low incomes; they aremore flexible than a system of financing which relies exclusively on grantsor scholarships, and they are both more efficient, in terms of effects onmotivation of students, and more equitable in terms of redistribution ofincome. However, Lesotho's present loan sLheme is not meeting these

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objectives adequately. If the loans are not collected, the government iscarrying the overhead of the administration of awarding the loans.Likewise, if the recipients are aware of the government's inability andlack of resolve to collect the loans, the loans will be viewed asscholarships, and so the efficiency criterion will not hold either.Finally, the present system of providing the loans to nearly all studentsregardless of need has a perverse equity effect for the system is skewed infavor of the economically advantaged.

2.68 Given Government resolve, the system can be made to work.First, eligibility for the loan should be made more discriminating than itis now and should be based on economic need of the recipient as well asmanpower needs. The development of such criteria should reduce the numberof loans made to at most 50% of Basotho enrollment, thereby reducingdirectly the costs to government and the number of loans to administer andto collect. In addition, graduates should be asked to repay 100% of theloans and the current practice of discriminating in favor of loanrecipients who accept government positions should cease. Government civilservants in Lesotho are a favored economic class and so there is no equitybasis for their special treatment. At the most, repayment of the loanshould be adjusted only for those in areas with acute shortages of trainedmanpower, such as engineering or secondary school teaching or for those whosuffer economic hardship after receiving a university degree.

2-'-69 The loan repayment scheme should be adjusted so that graduatespay no more than 15X of their disposable (after tax) income per year. Ifthe average graduate disposable income were M5,000, then he would not beexpected to pay more than M750 per year. In addition, an interest rate ofat least 5% p.a. should be charged as a means of increasing the economicefficiency of the loan scheme. On this basis a graduate could repay a loanof 14,850 over an eiglht year period with a yearly payment of M750.

2.70 There is no management efficiency gained by asking the NMDS,which identifies the nation's manpower needs and selects the loanrecipients, to serve also as the collecting agent of the loan duringrepayment. The NMDS is not staffed to enforce loan repayment, and this isprobably a major reason for present collection problems. Therefore, NMDSshould be responsible oinJv for the identification and disbursement of theloans to the recipients until ti1cy h-!- completed their universityprograms. Once each recipient has completed his/her program of study, NMDSshould transmit the loan documents and supportAng information to anotheragency such us the Lesotho National Bank or the Income Tax Department. Itmay also be posi.ble to request commercial banks to assist the country inthis matter and to divide the loan collection responsibility among allbanking members. Another possibility would be to put the collectionresponsibility out for tender to all local financial institutions. A flatfee for each loan repayment made could be paid to the collectinginstitution, or the loans could be sold at a discounted rate to theinstitutions and they would keep the difference between the loan amount andthe discounted amount if successful in full collection. The latterapproach would be an incentive for banks to enforce collection. Theinstitution bidding the lowest discounting rate would be awarded the tender

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and upon receiving the loan documents would pay Government the discountedamount for the loans. This method would result in an immediate deposit offunds from previously uncollected loans into the Treasury thereby providingfunds toward new loans. At the same time, administrative demands would betransferred from Government to the financial sector.

2.71 If this devolution of loan administration is not accepted, thenas a last resort there should be an improvement in NMDS administration.The current costs of administration, which are between 12 and 15Z of thevalue of the loans, fall within the lower range of the costs ofadministering loan programs in most countries. Not much is accomplishedother than the identification of the recipients and the initial award ofthe loans. There is little or no follow-up of the recipients and it isunlikely that NMDS can provide an accurate listing of past and currentrecipients as well as their progress toward graduation. And, mostimportant, NMDS cannot, with any confidence, produce the current addressand place of employment of the university graduates who have loansoutstanding.

2.72 A consultant should be sought to assist the Government to developan effective loan administration program. This consultant would assistNMDS to design eligibility criteria in selecting loan recipients, determinethe administrative structure required to manage the program effectively,design the data base needed for each recipient for a follow-up throughfinal collection, and assess the feasibility of requesting financialinstitutions in Lesotho to take over the responsibility for collectingoutstanding loans.

2.73 If Government does not have the political stamina to effect thecollection of the loans, then the loans should be turned into grants byphasing out the loan scheme, and the amounts reduced significantly. Thisapproach would be less costly than having a pretense of a loan scheme,since it would save the administrative costs of managing the loan scheme.However, moving away from the loan scheme Is retrogressive and it wouldbe best to make the present scheme work, albeit under very differentconditions.

III. RESOURCE ALLOCATION AND DECISION-MAKING IN EDUCATION

3.01 The proposals for improved cost-effectiveness made in this reportcaL be implemented only through a process of resource allocation anddecision-making. This section reviews this process, with particularreference to NUL, and makes recommendations on how to integrate improvedcost-effectiveness in education into the Government's normal way of doingbusiness.

The Role of the Ministry of Finance

3.02 In the Ministry of Finance, the Central Budget Office (CBO) underthe direction of the Budget Controller and with a staff of fourteen isresponsible for developing the national budget. Each budget officer in the

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CBO is responsible for the budget allocations of certain Ministries ormajor spending divisions of government, with an average per officer ofapproximately M40 to M50 million.

3.03 Unfortunately, the last national income accounts of Lesotho werecompiled in 1978, and government's accounts have been audited andreconciled only up through the 1978 financial year. Nonetheless, aroundJuly 1 of each year the Ministry of Finance issues a budget circularcontaining the guidelines and timetable for developing the budget for thecoming financial year beginning the next April 1. In this circular,indicative budget ceilings are specified for each major cost center ofgovernment. Recently, due to depressed economic conditions and theweak revenue situation facing the Lesotho government, these indicativeceilings have indeed become the maximum allowed most cost centers or havebeen subsequently reduced. The first reconciliation between the ceilingsand ministry request comes in August or September when the ministriessubmit their estimates of expenditure to Finance.

3.04 The staff of CBO begins a preliminary review of the submissions,which is primarily a checking of the computations by the submittingagencies. In mid-November, budget discussions are held with the ministriesand other major cost centers to ensure that commitments can be covered andto ascertain if there have been any changes relative to income generationby the ministries. In late February, a first draft of the budget isprepared vhich is submitted to a committee of permanent secretaries forreview. After acceptance by the permanent secretaries, a budget paper isprepared and the draft estimates are presented to Cabinet, after which theyare laid before the National Assembly for debate and approval. The 1984-85Draft Estimates were placed before the Assembly in early March, a veryuncommon experience for recently it had become a practice to debate thebudget after the new financial year had begun. This delay has beenascribed to problems with parliamentary scheduling rather to anyshortcoming of the Minstry of Finance.

3.05 At the Ministry of Finance, there is little, if any, programmaticanalysis of the education bndget as a whole and none of the Universitysubvention. In fact, the Government Estimates when published show nobudgetary information on the University other than showing that it receivesa lump sum subvention under the subhead Grants and Subscriptions".There is always a full budget hearing on the overall budget of MOE and KULwhich is attended by high level MOE and NUL officers. However, the CBO isnot staffed adequately to competently carry out an analysis of theUniversity's budget which would relate the funding to a programmatic base.The effect of this lack of programmatic analysis is that the size of theprevious budgets propel the next budget with increments based on a patternof historical proportions, rather than on the value of new and/or expandedprograms, and the Ministry of Finance is not equipped to ask key questionson cost effectiveness.

3.06 It is generally expected that the Ministry of Planning would beinterested in program content of government spending and thus would have anintegral role to play in the budgetary process, both on the recurrent and

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development sides. However, in Lesotho, the Ministry of Planning plays norole in the recurrent budget process. It prepares only the developmentestimates, although it seems to have more of a coordinating than asubstantive role even in this process.

3.07 In short, at the central core of the national process of resourceallocation, there is an absence of conscious priority setting based uponstudy and analysis relative to economic and social needs of Lesotho. Theassumption is that government spending in the future by and large should bethe same as it was in the past. Such an outcome would be acceptable if itwere reached from a process of analysis and not from chance. At the sametime, when reductions need to be made these are usually across the boardrather than selective reductions and increases depending on priority andquality of programs. Finally, monthly expenditure and budget reports whichare generated out of the government computer in Finance are three or fourmonths in arrears with little reconciliation of figures, and thus theprocess of expenditure review provides little assistance in the redirectionof resources during the financial year and operating ministries arehampered in carrying out regular expenditure reviews. The result is oftenserious problems of overexpenditure.

3.08 In order to strengthen the central budgeting process, theMinistry of Finance should begin a staff development program for seniorbudget officers and at the same time review the job classification systemfor this group of officers. The current system encourages the more highlyskilled accounting staff to accept positions in the operating ministries,thereby leaving the major budgetary analysis unit of government withinadequately trained and inexperienced personnel. The preferred directionof the personnel promotion path of the budgetary area for senior staffshould be upwards toward the Ministry of Finance, not in the otherdirection. In this manner, the skilled and experienced personnel in theCBO would have working knowledge of the programmatic content of the majorresponsibilities of the operating ministries.

3.09 In addition, the CBO should develop a system for formal annualprogram reviews and analysis, and supporting documentation for the budgetrequests from the Ministries should be standardized to facilitate thisreview. The senior staff of the CBO would then formally review submissionsin determining the budgetary allocations to the operating ministries.

3.10 The review of the NUL budget is made somewhat more difficult bythe fact that the Senior Permanent Secretary, who is also the head of thecivil service, chairs the University Council and the Board of Finance,while the Permanent Secretaries of Finance and Education are members of theUniversity Board of Finance. Because of their membership on thesecouncils, the role of the national government agencies in the review andapproval of a large claim on the country's resources is unclear, sinceGovernment is acting on a request that its key representatives have alreadyapproved. To improve the ability of Government to review objectivelyUniversity requests for budgetary support, membership on the Council andits major committee/boards by senior civil servants should bediscontinued. The needs of Lesotho as well as the University would bebetter served by creating a clearer distinction of the roles of Governmentand the University.

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The Role of the Ministry of Education

3.11 The Ministry of Education plays an important role in theallocation of government resources from its share to primary, secondary,and post-secondary institutions. However, its staff resources are solimited that the review of budget requests is usually done in an ad-hocmanner by the deputy permanent secretary, with assistance from the PlanningUnit. With the University, the Ministry is a conduit through whichgovernment resources by means of the subvention are passed to theUniversity. The Ministry has no real impact on the size of the subventionas it is fairly well dictated by the Ministry of Finance, which makes itsdecision on what resources are available, or what government can afford,rather than on intrinsic value of the University request.

3.12 There are fifteen Basotho staff in the Ministry's accountingunit, including a senior accountant and three accountants, as well asassistant accountants and accounting clerks. None of the staff hasprofessional accountancy preparation and most are holders of the CambridgeOverseas School Certificate. The unit has very little machine support ofits budgeting and accounting activities in terms of a small computer,accounting machine, or calculators. The financial procedures in theMinistry of Education are relaxed and there is a constant by-passing ofprocedures by the management of the Ministry. In order to strengthen thebudget and financial review process, an expatriate financial controllerfunded by the British Overseas Development Administration has been secondedto the Ministry.

3.13 Overall the Ministry of Education must take a more active role inthe budgetary process of educational programs in the country. This rolecan best be filled by the Ministry analyzing the program content ofbudgetary requests relative to the educational objectives and the manpowerneeds of the country. The Planning Unit's responsibilities shouldtherefore be expanded to include program review, analysis, andbudget-making including review of the NUL budget, and the status of itsstaff should be upgraded. When the estimates are forwarded to the Ministryof Finance, each major program area request could then be accompanied by anarrative explaining the function of each pr'gram and a justification ofthe budget request in terms of the past periormance %f the unit andexpected future outcomes from the proposed level of support.

3.14 Relative to NUL, the Planning Unit should be provided with thebudgetary request and supporting documentati,n from the University early inthe process of developing the national budget. In this manner, the Unitcan assist the Ministry in making a judgment regarding the size of thesubvention which is recommended to the Ministry of Finance and can morereadily play the role of advocate for NUL if necessary. To meet its newresponsibilities, the Planning Unit should establish a new position ofpost-secondary education planner.

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3.15 Given the fact that the Ministry of Education is responsible forexpending the largest proportion of government funds, the accounting andfinancial unit in the Ministry must be strengthened. First, thequalifications of the accountancy staff must be upgraded and an increase iathe establishment for higher level accountants should be provided for.Second, financial procedures throughout th- Ministry should be reviewed andtightened. Finally, a microprocessor sb- 'd be acquired so that theMinistry can maintain data files for pla.3ing purposes as well as anexpenditure control system.

The Decision-Making Process at NUL

3.16 To fully understand the decision-making process at NUL, it isessential to understand the legal basis of the institution, its formaldecision-making bodies, and its budget development processes. Annex 2provides a detailed description of these bodies and processes.

3.17 The NUL's decision-making process depends on a complicated set ofcommittees, including the University Council, the Board of Finance, theSenate, the Board of Management, and the Board of Development. TheVice-Chancellor's tenure is usually limited, and the Registrar representscontinuity at the institution. At NUL, the Development Planning Unit,presently staffed with an expatriate academic planner, a physical planner,and a counterpart academic planner, is supposed to provide managementinformation to the Vice-Chancellor's office but it has developed only arudimentary capacity in this area. On the whole, the planning andbudgeting process for the academic area is not carried out systematically.For example, staff/student ratios, teaching contact hours, output ofgraduates, research output of faculty, and so on are not "-sed in anysystematic manner to develop and justify a budget of an academicdepartment. In addition, there are no comparisons made between departmentsrelative to the funding and student loads in one department to that inanother, and therefore, there is no conscious attempt to reallocateresources from an overfunded department to an underfunded one based uponstaff/student ratios. The result has been a proliferation of smalldepartments with uneconomically low enrollments. During the financialyear, there are no regular periodic expenditure reviews within faculties todetermine if one department is spending at a pace inconsistent with theperiod of time remaining in the financial year. Moreover, there is noregularized University-wide review of expenditures.

3.18 In the academic area, reviews and evaluation of programs arecarried out in an ad hoc manner by departmental staff, as well as throughreports of external examiners. There have been complaints of highabsenteeism by teaching staff. The reasons for these absences range from astaff member's employment in a consultancy assignment, interest in aprivate commercial venture, or preoccupation with building a house inMaseru. It is reported that the disciplinary process through committees isso cumbersome that in the recent past no staff member has been disciplinedfor absenteeism. Staff discipline is the respousibility, according toOrdinance No. 11, of the Standing Staff Discipline Committee of theAcademic Staff Appointments Committee.

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3.19 There are similar supervision problems in non-academicdepartments. It is difficult to discipline and punish laggard workersbecause of the complex and slow committee structure. The effect of thediscipline and supervisioa problem in works and maintenance can be easilyobserved in the poorly swept floors in the buildings and uncut weeds andpoorly mown grass on the grounds. Because of these problems, the Facultyof Law at the request of the NUL administration has drafted new proceduresand an implementation scheme is being worked out.

Recommendations for NUL

3.20 Autonomy is not a right, it is a privilege and responsibilitygiven by society to the university commnity. It is important that societycontinues to be convinced of the value of an autonomous University. Toensure this position, the University must reflect that it is aware of itsrole in society and that it is not wasting the resources society providesfor its support. Therefore, the recommendations in this section aredirected at assisting the NUL to better manage the resources at itsdisposal, to better carry out its mission, and thereby to protect itsspecial autonomous nature.

3.21 First, NUL must improve the means by which it evaluates itselfinternally. A system of scheduled periodic reviews should be initiatedacross the University in both the academic and non-academic areas. Eachprogram should be reviewed at least once in either a three- or five-yearcycle. The process of relying on external examiners as the basis ofprogram review and evaluation in the academic departments is inadequate fora growing and developing institution since checking examination papers andreviewing the marking of the papers absorb so much of the externalexaminers' time that they are unable to give anything more than asuperficial evaluation of a program as a whole. The Academic PlanningCommittee is the natural body to be assigned this responsibility and theDevelopment Planning Unit should provide the staff work.

3.22 The following is a suggested format for program review whichcould be used at NUL. It is based on the format developed by the Board ofHigher Education of the State of Illinois, which is a coordinating body forhigher education that reviews and recommends all budgetary requests to thestate government. The Board requires that public universities themselvesreview their academic programs once every five years.

Academic Program Review and Evaluation

Faculty:Department:Degree Program:

I. Program Description:

A. What are the specific objectives which have beenidentified for this instructional program?

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(Objectives need to be tangible, accomplishable, andrealistic. They should reflect and represent facultycoamitment, and they should fit within the larger missionof the college and university.)

B. Major Program Features:

What is the structure of the program? What admission andcurricular requirements must its students meet? Whatform of academic advising is provided? What other majorfeatures contribute to achieving the program'sobjectives?

(Features must relate back to the objectives. Comment onthe adequacy of equipment and of the library collectionis appropriate here, as is reference to other supportcomponents--laboratories, internships, internationallinkages, established guest lecture series, etc. Tnefundamental questions- that of structure- shouldprovide readers from other disciplines with a clearunderstanding of the conceptual design underlying thecurriculum, i.e., some curricula build from basic skillsto theory, others from general surveys to specific issuesor limited time periods. The reader should be able tounderstand how the typical student moves fromintroductory material to the level of mastery requiredfor completion of each degree.)

C. Program Staff:

How many staff does the program have? Does it havesufficient staff to meet its program objectives? Arethere any gaps in providing coverage of the major subjectthemes of the program? What proportion of the staff iscomposed of expatriates? How does staff size and breadthcompare with programs in similar institutions? If staffresources are considered to be insufficient or ifcoverage of the field is inadequate, provide evidence tojusitify additional resources, e.g., data on facultyloads, over enrollments in essential classes, delayedgraduation of students, unmet demand for graduates,comparable coverage in lending programs in otherinstitutions. Can the problem be addressed withpart-time or temporary staff or with graduateassistants? Are there appropriate opportunities forstaff development?

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II. Program RationaleA. Date of Program Initiation:

B. Student Clientele:

What is the student demand for this program? What are thecharacteristics of the program's students? How does theprogram seek to meet the needs of its students? What effortshave been made to create an intelectual and social climatethat will foster broad student development? What is theprogram's policy on the use of student evaluation ofteaching? What sort of input do students have in theprogram's operation?

(Student characteristics should include quality indicatorssuch as COSC scores, comparisons of these scores to those ofstudents in other programs in the college, the university,discipline, and an indication of trends in student quality.)

C. Societal Needs:

What is the relationship between manpower needs in this areaand program enrollments? What are the current and projectedcareer opportunities for graduates of this program? Ifmeeting societal manpower needs is not a basic rationale forthis problem, what other justifications exist? (Manpowerneeds are not the only or even the primary justification formany programs. There is no need to be apologetic aboutthis. But it is important to consruct a clear and compellingrationale for the program's existence and, indirectly, forthe expenditure of public funds in its support. In the caseof manpower needs, it is especially important to addresschanging employment, practlces for graduates and diversecareer patterns. If these changes are relevant to yourprogram, other sections of the review should evidence anappropriate response in terms of curriculum, advising,recruitment of students and faculty, etc. Whatever therationale, program objectives mNst complement this sectionand logically support it).

D. Relationship to University Scope and Mission:

In what ways does the program contribute to the majorpurposes and mission of the university? How does the programfit into the university's programmatic scope?

E. Relationship to Other University Program:

What interrelationships exist between this program and otheracademic programs in the institution? To what extent doesthe program meet a service function for student majors inother disciplines?

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(What is the program's current contribution tointerdisciplinary activities? Are there areas in whichcooperative activities result in resource efficiencies andprovide clear benefits to faculty and students? Do trends inthe discipline suggest closer links with other programs?What barriers to cooperation need to be surmounted?)

I-I. Program Achievements and Standing:

A. Student Achievements:

What are the major achievements and other measures ofquality of students in this program? (include studentawards, membership in honorary societies, publications orcomparable creative or professional accomplishments.Address the question of production in terms of degreesgranted compared to students in the program. Is thiscompletion rate appropriate in the discipline? If not,what plans are being formulated to deal with this?.

B. Faculty Achievements

What are the major achievements and other measures ofquality of the faculty in this program?

(Faculty achievements should be discussed for thedepartment as a whole in the review of the highest degreeprogram. The review should define standard measures ofquality within the discipline and judge departmentalfaculty on the basis of criteria used by institutions ator above the level to which the department aspires. Theassessment of faculty quality should also address thequestion of breadth. Is evidence of quality app-rent atall ranks? Does the department's reputation depend on asmall number of exceptional staff?).

C. Placement Information:

What success have recent graduates of this program had insecuring employment in their chosen field or relatedareas? Provide placement data or follow-up datasupporting this.

(Admission to quality graduate and professional programsmay provide an alternative or supplementary indication ofthe program's success).

D. Program Standing

Overall does the program compare well qualitativelyagainst other within the institution? How does itmeasure up to its competition within the discipline as awhole?

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(This section requires an explicit indication of thestandards against which the program has been measured.Benchmark institutions should be identified and qualityindicators applied in systematic fashion. Referencerankings used by the discipline or within academiagenerally may be used. as well as results ofcorrespondence with other institutions. What otherinstitutions have the strongest programs? Can thedepartment, given the mission of this university and theresources it can reasonably expect, attain this level?If not, what level of excellence is appropriate and howclose is the department to achieving it?

3.23 Hore than likely, a national program review process would resultin cousolidation of certain programs into broader programs and abolition ofcertain academic departments. However this should not be viewed purely asa cost cutting device. A. minimum number of students in a class isnecessary for an optimal education/learning process and overly smallenrollments hinder a quality education rather than enhance it. In additionby grouping instructors in larger entities, opportunities forcross-fertilization of ideas and enhanced constructive criticism will beexpanded. Some possibilities to be considered are those of establishing aa new Department of Earth and Physical Sciences combining chemistry,physics and geography; a Department of Biological Sciences combiningbiology and pharmaceutics; a Department of Mathematical Sciences combiningmathematics, computer sciences and statistics; a Department of History andPhilosophy combining history, philosophy and theology; and integration ofthe Department of African Development into other relevant departments suchas history, economics and anthropology.

3.24 In order to improve the program review process, the DevelopmentPlanning Unit should expand its functions and provide more managementinformation to the University administration. To emphasize its newfunctions the title of the unit should be changed to something like theOfficer or Bureau of Institutional Research and Management Information.This expanded unit should also play an integral part in the budgetdevelopment process by providing cost analysis and input-outputrelationships. The unit would develop a data base- historical andprojected- for each program area and assist each program area indeveloping a framework of questions to be addressed for the program areaitself, the University, and government authorities.

3.25 With regard to the non-academic part of the University, theBursar has shown that with good will and clear direction,cost-effectiveness can be integrated into the decision making-process.However, as an expatriate, his tenure will be limited; another expatriatewould have to spend many months adjusting to the Lesotho environment andmight not have his dynamic approach to management. It is thereforeessential to continue the process of training and localization in this andother administrative posts in the Bursar's and Registrar's offices, makingsure that Basotho staff have not only the formal academic credentials, but

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also a variety of experiences which are necessary to implementcost-effectiveness policies. NUL has taken action in this area and ecpectsshortly to localize the positions of Bursar, Academic Planner, and PhysicalPlanner.

3.26 There is a need to reduce the excessive number of boards withformal decision-making powers. For example, rather than a Board of Financewith membership separate from that of the University Council, itwould be more appropriate to establish a finance committee composed ofCouncil members who would then report directly to the Council and wouldutilize the services of the institutional planning unit for relevantinformation. Similarly, the Board of Management could be another standingcommittee of the Council while the Board of Development and theAppointments Committee could be standing committees of the Senate. Asimplified and efficient system for censure of staff wiLh a record ofexcessive absenteeism should be instituted. Finally, consideration shouldbe given to establishing a committee of NUL and other Government officialsto review the recommendations made in this report and to set up a phasedprogram to implement those recommendations found acceptable.

Higher Education Interinstitutional Cooperation

3.27 The educational consortium is a widely used mechanism by small aswell as large institutions of higher education, primarily in the Canada andthe United States, to expand the. breadth and depth of their offerings tostudents. NUL has much in common with small private colleges anduniversities in the USA and therefore NUL should examine the feasibility ofentering into a consortium with other nearby universities.

3.28 Fortunately, the Vice-Chancellors of the former participatingmembers of the defunct University of Botswana, Lesotho, and Swaziland(UBLS) have initiated meetings on possible cooperation and the breachbetween the three institutions, brought about by Lesotho's withdrawal fromUBLS in 1975 because of disputes over personnel and administration, appearsto be healed. The Vice-Chancellor of NUL has taken a leadership role inpressing for operational discussions among deans and department heads ofthe three universities. On October 25, 1983, the Vice-Chancellor presenteda paper which identified specific areas where cooperation could beginimmediately, including sharing of external examiners, coordination ofuniversity schedules, facilitation of the admission of students from onecountry into programs of study in another, staff exchange and secondment,cooperation of research activities, exploration of an interlibrarymaterials loan program, and curriculum development.

3.29 In the case of Lesotho, Botswana, and Swaziland, an academicconsortium should not be seen as a movement back toward the rebirth ofUBLS, for, as one authority emphasizes, the common thread in all consortiais the joint venture among otherwise independent institutions in whichmembers combine resources to maximize mutual gain and minimize individual

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risks"5/. Autonomy of institutions is increased through a consortium, foroptions not otherwise available to a university become a reality.

3.30 The historical experience of academic consortia in the UnitedStates has resulted in the development of a typology of types ofconsortia6/. The general purpose, homogeneous category, which coversinstitutions which are similar in size and mission joining together tocooperate in a wide range of activities, best fits the proposed consortiumof the Universities of Botswana, Lesotho, and Swaziland 7/. Theexperiences of this type of consortium, such as the Committee onInstitutional Cooperation, a grouping of midwestern U.S. universities,should be studied in developing the organizational structure of thisproposed consortium.

3.31 The possible cost savings from consortia should not beexaggerated since there may be significant administrative costs. In thelonger run, the institutions will be able to fulfill additional functionswithout incurring major new costs, but actual short term cost savings willbe minimal. The strength of the consortium will therefore be to assist inproviding a growing range of programs over the years. The consortium wouldact as the organizer and coordinator of specific programs, but would phaseout if each institution grew to the point where a program could be offeredindividually; whereupon the consortium would take on new cooperativechallenges. To use a specific example, while NUL may be unable to justifya baccalaureate degree program in nursing in the short run, the consortiumcan be the vehicle for providing that program for Basotho students in theUniversity of Botswana while the foundation of the program at NUL isdeveloped. Other programs tentatively identified as appropriate are thediploma and degree agriculture program in the University of Swaziland andthe statistics and pharmaceuticals programs in Lesotho. It would also beappropriate to centralize degree instruction in physics in one of the UBLSinstitutions.. In most academic programs carried out under the auspices ofthe consortium, students should remain at their home institution for atleast the first two years and take the basic requirements for the programthere. By this means, each university would have the foundations for afull range of programs when and if each got the enrollment to make aprogram cost effective.

5/ Dan M. Martin, "The Academic Consortium: Limitations andPossibilities", Education Record, Winter 1981, pp.36.

6/ See Martin, Ibid., Franklin Patterson, Colleges in Consort. SanFrancisco: Jossey-Bass, 1974, pp. 10-29; American Association forHigher Education, Guide to Interinstitutional Arrangements: Voluntaryand Statutory. Washington, D.C.: American Association for HigherEducation, 1974.

7/ Martin, p. 36-37.

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3.33 A UBLS consortium should have a broader membership than the threeinstitutions, since certain programs such as engineering may not be costeffective at any campus. Formal ties could be developed by the consortiumwith universities in Europe and North America whereby students wouldcomplete their programs at the overseas location of the consortium member.

3.34 While there will be economic benefits for each member of theconsortium, these benefits will not accrue equally to the members. It is,therefore, important to identify the location of the costs and theproportion of the sharing of benefits of each program undertaken. Thensome mechanism must be developed to balance any diversion from the equalsharing of the costs and benefits of programs by the members.

3.35 The three former UBLS institutions should seek a consultant toassist in determining the feasibility of a consortium. This consultantshould assist them to: (a) assess the need for interinstitutionalcooperation; (b) identify the proper model for the needs of theseinstitutions; (c) identify the programs which should receive the highestpriority in the short run for cooperation; (d) develop a five- to ten- yearplan of program cooperation which identifies the programs which will bedeveloped to a mature status on each campus during the early stages so thatthe cooperation regarding those programs can move to a different status;and (e) prepare a proposal for donor funding to cover the administrativecosts during formative years of the consortium.

IV. COST EFFECTIVENESS AT OTHER POST-SECONDARY INSTITUTIONS

The National Teacher Training College

4.01 The National Teacher Training College (NTTC), established in1975, is the only teacher training institution in Lesotho. It replacedfive smaller mission-run teacher training colleges which were closed downat the time of its establishment. The college had a difficult beginningreportedly because of inadequate consultation and failure to utilize staffin the existing colleges. Since that time, NTTC has been a controversialinstitution and subject to several outside studies and evaluations.

4.02 The NTTC has three full-time programs-- the Primary TeachersCertificate program, provided to students with a junior certificate, theAdvanced Primary Teachers Certificate program, for students with a COSCcertificate, and the Secondary Teachers Certificate, for students with aCOSC certificate. These programs have a unique three-year span in whichstudents spend the entire second year teaching full time while beingsupervised by NTTC field staff. The NTTC also operates a part-timein-service program to upgrade untrained primary school teachers- LesothoIn-Service Education for Teachers (LIET), which provides two two-weeksessions during vacation time at the NTTC, course work by radio andcorrespondence (organized by the LDTC), and monthly meetings with NTTCfield staff. Total enrollment in the three full time programs in 1983-84was 1,072, of which 638 were on-campus students and 434 were second yearstudents teaching in the schools (Table 17). LIET enrollment in 1983 was386.

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4.03 In 1979, the Government asked UNESCO to review the NTTC'scost-effectiveness. The resulting study by Simon Pratt, "TheCost-Effectiveness of Teacher Education", concluded that student-teacherratios and costs at NTTC were comparable to similar institutions in Africaand that the innovative three-year training program was a cost effectivemethod of teacher training. The report noted that the additional cost ofsupervising second year internes was more than made up by the lowcr salarypaid to the teachers. The most serious teacher training problem was thelack of complementary primary school inputs especially textbooks andfurniture.

4.04 In 1981, a UNESCO consultant, Dr. D.W. Courtney, reviewedorganization and management of the NTTC. The subsequent report found thatinstitutional management was inadequate, appointment procedures for newstaff were haphazard, there was a lack of regular review of programs andstructure, there was a need for better liaison between field and on-campusstaff, and salaries varied excessively among staff members doing the samework. The report proposed ways to strengthen the college through hiringnew administrative staff, improving appointment procedures, andestablishing regular review of curriculum and programs.

4.05 The observations made in these two reports are still valid in1984. With regard to cost effectiveness, the estimation of unit costs atNTTC is complicated because all second year students receive stipends andact as full time techers. It is also necessary to substract tuition andfees paid by students from the total costs of institution. Assuming the1983-84 budget is expended as proposed (M1.3 million), then the cost perstudent, including student interns and field staff, is M1,204 per student(see Table 18). The savings to the government of providing a stipend tointerns (M600 per year) rather than hiring a full time untrained teacherCM1,200) equal M260,000 and should be subtracted from this total. Inaddition, on-campus students pay a total of M183,000 for tuition andboarding. Thus the net cost to the government of the NTTC is about850,000, resulting in a cost per studenz of M704. Since the program is forthree years in length, the cost per graduate is M2,112 or US$1,752. Thiscompares with costs per graduate in neighboring countries as follows:Botswana $2,076 (two years), Swaziland US$3,220 (two years), TanzaniaUS$2,340 (two years), Zambia US$1,452 (two years). Therefore NTTC costsper graduate are reasonable compared to other institutions, in spite of thefact that the NTTC is a three year rather than a two year program.

4.06 The present student-teacher ratio of 9.7:1 of on-campus staff isgenerous. However, the requirements for staff to prepare and organize theLIET program add significantly to their responsibilities. Nonetheless,there is no evidence that NTTC staff are overworked, as has been alleged bysome staff members (see Table 19). The NTTC is planning to initiate a newprogram to train head teachers. One additional staff member may be neededto develop and organize this program, but NTTC staff should be asked toteach in it as a part of a contractual arrangement.

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4.07 A report prepared by a special committee in 1983 investigatedstudent complaints of excessive costs of meat, poor upkeep and maintenanceof dormitories, lack of supplies as the fiscal year ended, and general lackof interest by the school's management in educational and student matters.A report currently being prepared by the Auditor General will examine infurther detail these allegations. It is also reported that some teachersdo not attend classes regularly and take little or no interest in studentwelfare. On-campus teachers have very little contact with student internsas well as with off campus staff, in part because funds for in-countrytravel have not been appropriated. At the same time, it is agreed that theNTTC has many dedicated teachers as well as students.

4.08 Overall the following actions would help to make NTTC a superiorteacher training institution: (a) top management at the NTTC, which atpresent consists only of the principal, vice-principal, and bursar runningan institution with a budget of MI.3 million, should be replaced if foundnegligent, but, in all events should be strengthened through establishing anew post of vice-principal for administration; (b) the NTTC administrationshould enforce student and teacher discipline and replace teachers who donot attend classes; (c) the privatization of food services, as proposed atNUL, should be sought; (d) hiring practices should be improved to ensurethat all new NTTC teachers have a minimum of three years teachingexperience in primary or secondary education; and (e) as stated in previousreports, the curriculum and teaching program should be regularly reviewedand revised.

The Lerotholi Polytechnic Institute

4.09 The Lerotholi Polytechnic Institute (LPI) consists of threecomponent institutions enrolling a total of 443 students. The TechnicianTraining School (TTS) provides diploma level courses to those who havecompleted secondary education in engineering, building construction andarchitecture. The TTS is the only post-secondary institution in thecountry which offers post-secondary technical training, since the NationalUniversity does not have an engineering school. The Lerotholi TechnicalInstitute (LTI) provides vocational training for those who have completedjunior secondary education in areas such as general mechanics, automotivemechanics, panel belating, carpentry, building construction, plumbing,electrieity, electronics, dress-making, and tailoring. The CommercialTraining Institute (CTI) provides two year training courses to those whohave completed junior secondary school in commerce and secretarial skills.The CTI also provides part-time courses for those already in commerce andgovernment.

4.10 Technician training was started in 1972 by the Ministry of Workswith the main objective of providing skilled manpower in construction andcivil engineering. In 1978, the TTS was transferred to the Ministry ofEducation and came to form part of LPI. The TTS diploma courses are ofthree years duration of which about 12 months are spent in industrialtraining in industry or parastatals. In 1983-84, enrollment wasdistributed as follows: civil engineering 34; mechanical engineering 6;electrical engineering 21; architecture 21; total 82.

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4.11 The school is staffed by 8 lecturers, only one of whom is aBasotho. The expatriates, including the principal, are supplied throughODA and EEC assistance and on two to three year contracts. The objectivein designing curricula and syllabi for the TTS has been to offer a broadrange of technical subjects. There is a heavy bias towards civilengineering related subjects apparently because of the earlier orientationof the school. There is a minimum amount of time spent on specializedsubjects and practical applications in workshops and laboratories.

4.12 The TTS facilities include four classrooms, one sciencelaboratory, one materials laboratory, one carpentry workshop and onelibrary. These facilities are reasonably well equipped but lackspecialized equipment. For practical activities in mechanics andelectricity for which facilities are not available, the TTS could utilizethe facilities of the LTI which are available on the same campus and havespare capacity, but up to now this arrangement has not been made. As theintake is relatively small, about one half to two thirds of the applicantsare rejected each year.

4.13 Vocational training for skilled workers is offered uponcompletion of junior secondary school (JC level) as well as upon completionof primary school (Standard 7). The higher level training is offered atthe LTI, as well as the Technical School at Leribe and Leloaleng TradeSchool out of which the LTI only is a government school. In 1983-84,enrollment at LTI (Table 20) was electronics 8, tailoring 34, bricklaying32, plumbing 27, carpentry 28, electrical 23, engineering 96; total 248.Courses vary from two to three years in length.

4.14 The LTI has three large well equipped mechanical engineeringworkshops, and three electrical engineering shops, as well as threecarpentry, one welding and one building workshop. These facilities arereported to be underutilized and most theoretical work takes place in theworkshops rather than in a classroom. Curricula and syllabi follow thetraditional City and Guilds of London pattern and have not been revisedrecently. There is little exchange of ideas between employers andtechnical educators as to the content of courses and the present curriculamight not be the most suitable to satisfy employers' skills requirement.In addition, there has been no attempt to enter into industrial trainingpractice as part of the program. In-service training programs to upgradeindustrial workers are not offered in LTI.

4.15 The third part of the LPI, the Commercial Training Institute(CTI), enrolled 50 students in secretarial studies and 55 students incommercial studies. The entrance requirement is a JC certificate andpassing of an entry test, but due to the very keen competition, a largenumber of students have higher qualifications such as COSC or GCEcertificates. The institute is supported by West German assistance (GTZ)and the principal and one head teacher are German. Equipment and learningaids are modern and of high standard and the curricula and courses met thestandard required by the employers.

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4.16 A report prepared by a UNESCO consultant at the request of theGovernment in 1982 summarizes the issues and problems intechnical/vocational education. The report notes that the variousvocational training institutes in Lesotho have similar clientele but haveno common approach or unified curriculum and therefore recommends that adepartment of technical vocational education be established in the MOE as ameans of unifying curriculum. This department has since been establishedand is headed by an expatriate advisor. The report also points out thatthe three constituent parts of LPI have little or no communications and theindividual departments in the LTI work without any coordination or commoncore of courses. In addition, a 1984 report of the Auditor Generalinvestigated alleged mismanagement on the part of the school principal, whoat the time of this writing was on administrative leave. In view of theseproblems the MOE has requested management assistance from the Germangovernment, and the request is currently under review.

4.17 The student-teacher ratios at LPI are generous (Table 20). Theratios at the TTS of 7:1 and at LTI of 8:1 could easily be increased toabout 12:1. The ratio at CTI is 11.7:1, but this does not include thepart-time in-service training. Overall the total budget provided to LTI in1983-84 is estimated at M659,000 for 442 students, or an average of K1,490,which is not excessively high. However, a large number of teachers at theTTS and the CTI are paid with foreign funds and therefore their costs donot appear on the budget. The funds available for spares, maintenance,replacements, and other materials are estimated at an adequate M653 for LTIand M136 for TTS (Table 21). While the CTI figure of M8 for trainingmaterials appears low, it is reported that students pay for much of theirconsumable materials.

4.18 The external efficiency or effectiveness of LTI is good. Of 115graduates in 1983, only 13 were unemployed less than one year later (Table22). A total of 73 were employed in Lesotho and 17 were employed outsideLesotho, usually in the RSA. The loss of graduates to RSA is particularlyacute in the plumbing and building trades, where there is apparently ashortage as well as much higher wages. Graduates of TTS and CTI arealso reported to find employment easily. LPI should therefore considersignificantly expanding intake as a means of meeting demonstrated labormarket needs as well as reducing unit costs and increasing student-teacherratios. Such expansion, however, must be accompanied by a strengthening ofinstitutional management, especially at the level of the principal. As apriority a new principal should establish plans for a common core of basiccourses in technical English, applied mathematics, and science, for sharingfacilities among the three constituent institutes, and for improvingcooperation with industry.

The Lesotho Agricultural College

4.19 The Lesotho Agricultural College (LAC) is divided between twocampuses, one in Maseru and one in Leribe some 100 kilometres to the NorthEast. The Maseru campus also contains a demonstration farm. Research isconducted at a separate institution which is also located in Maseru, butthere is reported to be a lack of coordination between the extensionservice, the research institute, and the two college campuses.

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4.20 The LAC budget estimates for 1984/85 and the revised estimatesfor 1983/84 (Table 23) show that personal emoluments (salaries, wages andallowances) take about 70% of total annual outlays, at Maloti (M) 470,900,while materials and services of various kinds take the rest to make a totalestimated expenditure of M658,930 for 1984/85. About half of the total forwages and salaries are allocated to the payment of the teaching staff, withabout half of the remainder for employees of the farm. The distribution ofemoluments between teaching and non-teaching staff therefore seemsreasonable, although the output of the tenured civil servants whoconstitute the farm workers is reported to be less than it would be underthe exigencies of commercial operation.

4.21 In 1984 there were thirty-eight students taking the diplomacourse in agriculture mechanics, twenty-six the certificate in ruraldomestic economy anf forty-nine the certificate in agriculture. All ofthese were two year courses, with five years of secondary school requiredfor entry to the diploma and three for entry to the certificate courses.This makes a total of 141 students on the Maseru and Leribe campuses, whichresults in a low five to one student-teacher ratio. The physicalfacilities are adequate for more than twice this number and for the timebeing excess dormitory space should be made available to otherinstitutions.

4.22 If these 141 students are divided into the College's estimatedannual outlays of M564,718, excluding those for the farm of M94,212, thenthe current cost per student year is M4,005, which is just over two-thirdsof the current outlays per student year at the University. Student feesand boarding charges of M150 cover only a tiny fraction of these costs.Therefore while the LAC student does not get a loan, he gets a grant equalto the difference between his fees, the 44,005 tuition costs, andadditional charges for board and lodging.

4.23 Since there will be almost a doubling of the work-force whichwill need to find rural employment by the year 2000, it is difficult toexaggerate the burden which this task will impose upon the LAC. It maywell be that the college's current apparent ability to double itsenrollment without either an increase in teaching staff or buildings willneed to be taken up. However, at present, the Government does not havesufficient funds to increase its employment of agricultural extensionservice officers and future output of diploma and certificate holders willeither have to emigrate or become farmers themselves. As elsewhere, thereis anecdotal evidence that graduates of the LAC take up employment in theSouth African Homelands. It is even said that some accept the traditional,relatively highly paid jobs as miners on the Rand. In addition, theland-tenure system makes it difficult for LAC graduates to enter farming.The King of Lesotho owns the country's land in law, but he delegates theauthority over its distribution to the tribal chiefs in the traditionalmanner. Once these chiefs allocate the land in their area it effectivelyremains the property of the current occupier and his family, providing thatthey keep it in use, but the occupier does not hold title to the land andcannot borrow against such title. Thus, the graduate of the LAC may first

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find that all of the land in his tribal areas is taken up and even if hecan obtain an allocation in that third of the 347,000 acres of arable landwhich has fallen into disuse, he may still be unable to raise the capitalwhich he needs to farm in the manner in which he has been instructed at theLAC.

4.24 Several problems need to be overcome, therefore, if the bulk ofLAC graduates who may be destined to farm their own land in the future areto be effective. First the curriculum must be redirected towards privateemployment. Second the graduate mast be persuaded that own-account farmingis a suitable occupation for someone of his education. Third he must beallocated the land he needs. And fourth credit must be made available tohim under some sytem of assurance that he will pay it back. If all thesethings are done, a labour intensive, but nevertheless productiveagriculture may be developed with LAC graduates providing the lead-farmerexample which non-graduates should emulate.

4.25 In summary LAC could double its enrollment without anysignificant increase in total costs. Arrangements could be made for someof the graduates to take degrees in the established Faculty of Agricultureat the University of Swaziland. Increases in the number of graduates,diplomates and certificates in agriculture must be undertaken in the fullknowledge that most will have to become farmers themselves.

Lesotho Institute of Public Administration

4.26 The Lesotho Institute of Public Administration (LIPA) isadministered and funded out of the Prime Minister's Office with the primaryresponsibility to provide introductory training to new entrants of thecivil service as well as in-service training. While LIPA was officiallyestablished in 1976, its foundations were laid when a training committeewas created and a training officer was posted to government service in1960. By the time of independence in 1966, there had not been muchdevelopment of the Training Office, but in 1967 it was expanded to includeseveral instructors.

4.27 LIPA currently has divided its program area into four divisions-Management, Finance, Executive, and Marketing Research and ConsultancyDivisions- but due to staff shortages the latter two divisions are notfunctioning. The courses offered by LIPA are of short duration of one tofour weeks. Nearly all participants are from the civil service and theypay no fees; thus, the Institute relies solely on the governmentappropriation it receives for support.

4.28 The short courses are offered throughout the year at the Maserulocation and at the district offices, though recent budgetary constraintsin the support area of travel and staff subsistence have forced a reductionof the outreach training. The Maseru location is well appointed withclassrooms, library, and auditorium, but the LIPA staff feel the lack ofresidential facilities reduces the potential effectiveness of the Institutein its training function of the civil service. Nonetheless, approximately800 participants each year attend couzses at Maseru and the district

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locations. In addition to these short courses, LIPA, with the cooperationof the Faculty of Social Sciences at NUL, offers a Diploma in PublicAdministration. The first class in the Diploma program entered in 1983 andwill complete the one-year course of study in April 1984. The first classenrolled forty, but by mid-year the class had declined to thirty-fivethrough attrition.

4.29 LIPA receives donor support from the European Economic Community,which includes the secondment of an adviser from the United Kingdom and onefrom the Netherlands, whose primary role has been the development of theDiploma in Public Administration. The local staff of LIPA is composed ofsixteen, including the Director of the Institute. In addition, part-timelecturers from the University assist in the diploma program.

4.30 LIPA has experienced reduced budgets recently in the same manneras other government agencies in Lesotho. In 1983-84, its budget isM225,600 as compared to M233,160 in 1982-83. The 1984-85 budget isexpected to be no higher than that of 1983-84. The cost per participant in1983-84 is approximately M282. If one assumes one-half the participantstake one week programs and the rest are evenly distributed in the longerprograms the approximate cost per participant week is M205. Without morecomparative data, it is not possible to judge the cost effectiveness ofthese programs.

4.31 According to the Director, there is a rapid turnover in the staffat LIPA as the parastatals and the private sector hire them away once theygain some experience at the Institute. Therefore, it is necessary toreview the status of the staff and possibly identify a separateclassification for them in order that their salaries and/or benefits arecompetitive with the parastatals. Otherwise, the rapid turnover of staffwill quickly dilute the stability and the quality of instruction at LIPA.

4.32 It is probable that LIPA should not be offering the Diploma inPublic Administration. It seems that the comparative advantage of aninstitute within the civil service is to provide short-term trainingcourses, rather than year long programs with academic certification. TheInscitute of Development Management (IDM) is probably a better organizationto develop upper level management and administrative programs incooperation with the former UBLS universities. It should also be notedthat IENS is providing a similar program in business studies and isplanning a new diploma program for civil servants in the area of adulteducation.

4.33 Overall LIPA is effectively providing a necessary introductoryand in-service training function for the civil service. However, extremecaution must be exercised in its quest to develop into an institutionawarding academic certification and its activities should be effectivelyintegrated with those of IDM.

Institute of Development Management

4.34 The IDN is an autonomous, not-for-profit, organizationestablished in 1974 to assist in meeting the training needs of the publicand private sectors for mid-career and senior managers and administrators

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in Botswana, Lesotho, and Swaziland. IDM operates under the direction of agoverning board comprised of representatives from both government andindustry of the three countries. Complementing its trainingresponsibilities, the staff of IDM undertakes consultancies and relatedresearch in the field of management supported by a management resourcecenter. The IDM presents its programs at facilities in each of the threecountries. IDS is located in Haseru near the Lesotho Institute of PublicAdministration whose classrooms are used for classes by IDM.

4.35 IDM has received donor support from its inception but in 1982generated over three-fourths of its revenue requirements throughinstructional and consultancy fees. Each of the governments of the threecountries gives grants to IDM. The income and expenditure data for theyears 1980 to 1982 can be observed in Table 24. In 1982 the totalIDM budget was M830,000. The financial situation is good and IDM ispreparing itself for the cessation of donor support by building a reservefor future localization. It expects to generate 90X of its own revenue in1986 when the goal of full localization is expected to be achieved.

4.36 IDM offers a wide range of programs which are in session from oneweek in Public Relations to tweaty-four weeks in the Certificate inHealth/Nursing Administration (see Table 25). In 1982. 677 participantsspent 195 weeks in programs generating 3,493 participant weeks or anaverage of approximately five weeks per participant. The average cost perparticipant in 1982 was M1,226 or M237 per participant week, not an overlyhigh per unit average cost given the intensity of the programs.

4.37 In 1982 nearly two-thirds of the participants in IDM programswere from Botswana. Out of 49 programs delivered by IDM, 30 were held inBotswana, 9 in Lesotho, and 10 in Swaziland. In comparison in 1980 therewas a nearly equal proportion of participants from the member countries.This trend is explained mainly by the fact that there is an imbalance infacilities, both in terms of instructional as well as residentialfacilities, leading to locating most of the programs, especially the longerrunning programs, in Botswana. The distance from the other countriesdiscourages enrollment from them, for the associated costs such astransportation greatly increase the cost of the programs to theparticipants and/or their sponsors. This problem will exist regardless ofwhere the programs are offered, but a more even distribution of theofferings among the countries would spread these associated costs moreequitably. To get better representation in Lesotho IDM has prepared arequest for additional physical facilities, but it may be possible toutilize existing dormitory and hotel space in Maseru rather than toconstruct new facilities.

4.38 IDM represents an ideal model of three countries cooperating on aformal basis through a non-governmental organization. It is fulfilling animportant need by providing training and upgrading of skills to seniormanagers and administrators in both the public and private sector. Ananalysis of the limited enrollment and cost data available reflects thatthus far IDM is cost effective. The fact that IDM must rely on the qualityand marketability of its programs in order to generate the major portion of

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its revenue acts as a major impetus toward a continuation of this costeffectiveness. However, since its offerings are skewed in favor of one ofthe countries, Botswana, it may be limiting its market and threatening itsfuture. Therefore, greater attention must be given to achieving a regionalbalance in its offerings.

4.39 IDM should evolve into the primary high-quality provider andcertifier of upper-level of training in management administration.It would be uneconomic for other institutions, such as the University orLIPA, to attempt to duplicate the role played by IDN. It is, therefore,recommended that IDM should consider developing formal ties with each ofthe national universities in Botswana, Lesotho, and Swaziland whereby theuniversities would provide academic certification for certain programs incooperation with one another. IDM is also the appropriate institution toexpand the training of Basotho entrepreneurs who will be essential for thedevelopment of employment generating activities to absorb Lesotho's growinglabor force, as well as to invest the income expected to be generated bythe Lesotho Highlands Water Scheme.

V. COST-EFFECTIVENESS IN PRIMARY AND SECONDARY EDUCATION

Primary Education

5.01 Primary education (grades 1-7) is condurted in Sesotho (thenational language) for the first four years and mainly in English in grades5 through 7. In 1982, total enrollments were about 278,000, equivalent to123% of the female population and 102% of the male population aged 6 to12. Unlike most African countries, the percentage of female enrollment ishigher than that of male. About 30% of the primary enrollments wereoveraged students. Over the past few years the age of entry has dropj.edand the percentage of male enrollment has increased significantly.

5.02 In 1982, only about 27 percent of the pupils who had in 1975started the first grade were in the seventh grade and sat for the finalnational examination. The primary completion examination is graded on thebasis of normalizing all students' scores and then passing at least twothirds of all students, with the result that the pass rate was 72% in1983. The primary school teaching force of 5,295 in 1982 gives ateacher-pupil ratio of 1:48. About 36% of teachers are unqualified.

5.03 Primary education is still a joint venture between the Governmentand the churches, where the latter own and operate 97% of the primaryschools. The MOE trains and appoints teachers, administers examinations,reviews and authorizes curricula, opens and closes schools, inspects theoperation of all schools and pays teachers' salaries. The church groupsare responsible for hiring, transferring and disciplining teachers and foroverall management of the schools which are under their control. Parentsare entirely responsible for purchase of textbooks and teaching material.The church groups are by and large also responsible for primary schoolphysical facilities.

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5.04 The recurrent unit costs to the Government of primary educationin Lesotho are estimated at M 39 per student in 1982-83. This figure ismuch lower than the average for Eastern and Southern Africa of about $71,and is also significantly lower than neighboring (but richer) Swaziland andBotswana. To this figure must be added an average of M 6 contributed byparents in the form of a variety of school fees, for a total of N 45. Thestudent-teacher ratio of 48:1 in 1982 is higher than the average of 41:1for Eastern and Southern Africa and has increased slightly from 46:1 in1970. A beginning salary for a trained teacher (with a Primary TeachingCertificate) was M 2,244 in 1982. However, teachers' salaries overallaverage about X 1,900, since more than one-third of primary school teachersare untrained and receive much lower salaries. This average is equivalentto about three times per capita income, which is lower than the average offive times per capita income in Eastern and Southern Africa.

5.05 At the same time that costs are relatively low, there is inLesotho a general sense that the quality of primary education hasdeteriorated. Since the PSLC examination is marked on a standardizedbasis, the only direct evidence of low quality is in the low pass rates inthe senior secondary (COSC) examination which is administeredinternationally and for which pass rates have declined from 57Z in 1971 to26% in 1980. It is believed that weaknesses at the primary level are atleast partially responsible for this decline.

5.06 The MOB has therefore been acting to improve quality in primaryeducation, while at the same time being careful to keep unit costsrelatively low. With World Bank assistance, the MOE has instituted aprogram to distribute primary school textbooks to all students. Theprogram is being financed through charging a fee for book rental to allstudents and depositing this fee in a revolving fund designed to cover thecosts of future purchase of materials. The Government covers the overheadcosts of book storage in a central warehouse and makes bulk purchases fromthe publishers, with the result that costs to parents are significantlyreduced and an adequate supply of appropriate textbooks is ensured. Thisis therefore a relatively low cost way of significantly improving quality.

5.07 A school mapping exercise in 1980 revealed that Lesotho had avery serious primary classroom shortage, with an average of one classroomfor every 86 students, and with furniture lacking in 60% of all schools.With World Bank assistance, the MOE is managing a school constructionprogram utilizing local contractors and community participation throughprovision of teacher housing, ancillary services, site clearing, anddelivery of building materials to the school site. The construction costof M 9,000 per classroom is very modest.

5.08 With assistance from the Netherlands Government, the MOE has beenimplementing the LIET program to upgrade its more than 1,900 untrainedprimary school teachers. The NTTC's field staff convenes monthly one daymeetings of teachers as well as two three-week residential courses duringschool vacations. During the rest of the year teachers study bycorrespondence. The cost of upgrading one teacher to a level equivalent toa standard Primary Teachers' Certificate is estimated at M 265 per

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graduate, not including overhead and the cost of field staff. Thiscompares with a cost of about M 2,000 for students attending the NTTC for afull two years. The MOE is also plannin, to revise and improve the primaryschool leaving examination, so that it is based on competency rather thanstandardized pass rates. A system of item analysis and review would beinstituted, with feedback to schools on results on specific questions.

5.09 As stated in the -Education Sector Survey of 1982, the MOE isalso planning to strengthen education management through in-servicetraining of headmasters in school fees management, personnel management,and supervision of untrained teachers. Legislation has been passed toestablish a National Teaching Service Commission to ensure that teachingloads and student teacher ratios in all schools are in accordance withnational guidelines, that adequately trained teachers are hired, and thatadequate disciplinary action is instituted against absenteeism and otherproblems. All these actions show that, in a time of financial constraints,Lesotho is taking the appropriate action to improve primary school qualitywith minimal or no increases in unit costs.

5.10 Lesotho's population growth rate, if not reduced, will mean adoubling of the population in 25 years. Table 26 summarizes the estimatedgrowth rates of Lesotho's school age population from 1980 to 1985, based onthree scenarios - constant fertility, moderate fertility decline, andrapid fertility decline. Assuming that enrollment ratios continue atpresent - (equivalent to 113% of the school age population because ofrepetition and enrollment of overaged children) - by the year 2015enrollment would grow as follows and Lesotho would have to increase itsfunds dedicated to primary education (in constant prices) by the followingpercentages - constant fertility, 237%; moderate decline in fertility,137!; and rapid fertility decline, 22%. Thus if Lesotho were to implementa major program to reduce fertility, it would have available a significantamount of funds to improve primary school quality. If fertility does notdecline, Lesotho will find it difficult to retain even the presentrelatively low quality education system.

Secondary Education

5.11 Secondary education in Lesotho consists of three years of juniorsecondary and two years of senior secondary education. Students who passthe primary school leaving examination are eligible to enter secondaryschool. A pass in the Junior Certificate (JC) examination prepared by theLesotho Examinations Council and given at the end of junior secondaryschool is necessary for students to continue their education to the seniorsecondary level. The examination at the end of the secondary cycle is theCambridge Overseas School Certificate (COSC) which is prepared and gradedin the United Kingdom and is similar to *0" level examinations giventhroughout the British Commonwealth.

5.12 Enrollment in general secondary education was 29,000 in 1982 (60%female), which is equal to about 20Z of the population aged 13-17. Thispercentage is higher than most African countries and among the highest forcountries at Lesotho's per capita income level. About 20% of all students

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are boarders. The majority of schools are in the more densely populatedlowlands, with one third of all secondary schools in the Maseru area.About 21 percent of teachers are untrained, and expatriates make up 71percent of all degree holding teachers. 86% of the secondary schools areoperated by church groups, with the Government responsible only forproviding teachers' salaries.

5.13 Over the past ten years there has been uncontrolled expansions ofsecondary education and there are now about 110 schools enrolling anaverage of 290 students per schools. Many schools have an uneconomicallylow number of students. There are shortages of laboratories, libraries,teacher housing and school equipment.

5.14 As is the case of primary education, the unit costs of secondaryeducation to the Government are relatively low. They are estimated at M254 in 1982-83 (US $ 234) in 1982-83, compared to an average of about US $340 in Eastern Africa. To this figure should be added an average of M 83provided by students and the community for secondary schooling. Sincechurch groups manage most schools and have very limited funds at theirdisposal, they must recover the full amount for boarding costs, schoolmaterials, and school running costs. Payments by students vary greatly andsome of the elite secondary schools charge more than a 200 per annum.

5.15 The average salary paid to Basotho teachers is estimated at M5,300. This figure is about nine times per capita income, which is nearthe average of 10 to one in Eastern and Southern Africa. Consideringcomparative wage scales in the civil service as well as in the neighboringSouth African homelands, these wages cannot be considered high and may wellbe inadequate to attract qualified personnel into the teaching profession.

5.16 The main area of possible savings in costs in secondary educationis in the allocation and use of teachers. The present student teacherratio of 21:1 could be increased to 24:i or 25:1 through requiring teachersto teach additional hours per week, as well as through increasing studentclass ratios modestly from the present 35:1. The MOE is planning toimplement such an increase through the Teaching Service Commission, whichwill control teacher hiring in the individual secondary schools. At thesame time the MOE is establishing basic rules for management of allsecondary schools which often have contrained school principals andinadequate auxiliary staff for libraries and science laboratories, and isconsidering consolidating schools with excessively low enrollments.

5.17 The main issue in secondary education is its acknowledged lowquality, as evidenced by the fact that pass rates in the Cambridge OverseasExamination have decreased from 57% in 1971 to 19% in 1982. During aten-year period secondary enrollments increased from 6,000 to over 24,000while the number of COSC passes increased from 160 in 1970 to a high of 418in 1975 and has then declined to 386 by 1981. While a decrease in passrates can at least partially be explained by increased access, the absolutedecline in numbers must be explained by poor quality. Some observers havesaid that the teaching corps has experienced a growth of poor morale,resulting in inadequate teaching. Large scale absenteeism from classes is

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also reported. Another often cited reason for low quality Is the poorphysical facilities in many schools, which lack adequate sciencelaboratories and libraries. It may also be possible that schoolheadmasters have not been adequately trained and therefore do not motivateboth students and teachers.

5.18 As in the case of primary education, the Government has initiatedseveral relatively low cost quality improvement programs. As noted abovethe new Teaching Service Commission will regularize contracting of teachersto ensure that poorly qualified teachers are hired only when absolutelynecessary. The Commission will also seek to improve the qualifications ofthe volunteers and other donor supported teachers who make up 15% of thesecondary school teaching force. With World Bank support the Government isundertaking a school facilities and staffing survey of secondaryeducation. Thereafter schools which have been appropriately certified asof a minimum size and quality will have access to provision of scienceequipment and school materials, to be supplied to schools for a replacementfee. Supplementary equipment for home economics, agriculture, andhandicraft courses will be supplied to schools which are currently teachingthese programs.

5.19 The Government will also initiate a program for the training ofsecondary school headmasters. Two courses, each enrolling about 60headmasters and of one-month duration, will be held each year. The topicswill include planning, staffing, financial management, timetabling,curriculum management, study discipline, community relations andextra-curricular activities. Additional funds will be provided to improvedata processing of the junior secondary certificate examination.

5.20 The Government is not attempting to control secondary schoolenrollment growth. The argument for permitting further enrollment growthis that Lesotho will have to compete within the context of developingSouthern Africa. Since Lesotho has few natural resources, it is essentialover the long run for the Basotho to be at least as well trained andeducated as its neighbors. However, to ensure better budgetary planning, apolicy of restricting enrollment growth to a specific rate such as 3 or 4%p.a. should be established.

5.21 Overall as in the case of primary education, the Government'spolicies on secondary education as stated in the "Education Sector Survey"are appropriate within the context of its new financial constraints.However given the decentralized nature of the education system as well asthe lack of trained MOE headquarters staff, it will require diligence andhard work, as well as additional staff training and technical assistance,to implement these policies.

-51- Table 1

IINIT='! OF EDUCATI70i RECURPEIT EXPEiNDITURES, 1979/80-1983/84 1/

(in thousand Maloti)

Preliminary Actuals BudgetRECURRENT XP END ITURES

1979/80 1980/bl 19$1/82 1982/33 1983/84

Administration 936 397 639 493 539Sports and Culture 130 225 252 278 201Inspectorate 594 465 b92 678 b'92Primary Education 5,444 7,729 10,002 lrj,283 10,253Post ?rimary Education 2,561 5,020 6,093 6,94w 5,895LTI 420 486 578 517 5u4LDLVC 171 161 241 305 246

905 1,196 1,613 1,394 1,064tUL 2,713 4,358 5,064 5,879 6,371

Tocal '10E 13,874 20,037 25,174 26,776 25,7b5

as ' of Total Govern-ment RecurrencExpenditures 21.1% 19.3Z 21.5 22.O 18.&:.

1/ NUL costs in education budget differ from rest of tables since NUL,'sfiscal year is July 1 - June 30 while the Goveranent's fiscal yearis April 1 - March 31.

Source: MOE, Educational Planning and Ministry of Finance.

-52 -Table 2

ENROLLMENT AND COSTS 1/

NUL. 1969-1983

MOE Costs Unit CostsIn Constant

As a Z PricesAbsolute of Total (1980 -

Year Enrollment (000's) MOE.Costs Current 100)

1969/70 386 M375 17 M972 651970/71 402 305 15 759 491971/72 308 426 19 1158 711972/73 342 598 21 1748 1001973/74 456 772 20 1693 901974/75 536 913 21 1703 861975/76 502 1340 20 2669 1091976/77 671 1687 23 2514 931977/78 727 2104 20 2894 961978/79 822 1943 18 2364 731979/80 1048 2711 20 2587 721980/81 1090 4358 20 3998 1001981/82 1110 5064 20 4562 1041982/83 1133 5879 I/ 22 5189 116

1/ Based on MOE budget.These figures differ from the NUL budget since the Government'sfinancial year differs from the NUL financial year.

Source: World Bank Appraisal Report, 'Third Education Project", World BankEconomic Report on Lesotho, and unpublished data.

Date: May 30, 1984

ESTIMATED UNIT COSTS TO GOVERNMENTS OE PUBLIC EDUCATICN

EASTLRN AfRIC

Level of Education

Primary Secondary Higher

National lSS National USS National USS Year Exchange SourceCurrency Currency Currency of Data Rate

Botswana p 123 157 P 630 806 P 5400 6912 1979 P I USS 1.28 WB Appraisal Report

lturundi FB 4775 53 FB 31531 350 F8 276576 3070 1981 Fs 100 - US$ 1.11 WB Appraisal Report

Comoros PC 1081 47 PC 3082 134 _ - 1979 F CFA 100 * US1 4.34 WB Appraisal Report

Djibouti FD53312 300 FD 68057 It 383 _ - 1982 FD 100 - US$ 0.56 WB Sector Memorandum

Ethiopia B 56 27 B 192 93 B 2809 1357 1981 B I - US$ 0.483 Gov't of Ethiopia andIUnesco Sector Studies

Kenya 5 400 53 S 1520 201 S 33640 4440 1980 KS I - USS 0.132 WB Financial Study jwLoeotho M 39.4 36 H 254.1 234 M 6411 5898 19d2 M I - uSS 0.92 WE Appraisal Report

MadaRascar _ _ _ _ _ _-

Malawi K 13.6 12.5 K 235 216 R 3716 3419 1981 K I - US1 0.92 wz Appraisal Report

Mauritius R 896 116 R 1543 201 R 24378 3169 1979 R I - US$ 0.13 WD Sector HMeoranda

Rwanda PR 2570 28 FR 35272 381 FR 285092 3079 1980 FR 100 - USS 1.08 WB Appraisal Report

Somalia S ! 16 27 S 12b8 84 S 13559 895 1982 s I . US$ *J66 USAID Sector Report

Sudan LS 55.7 43 LS 135.4 104 LS 2224 1712 1980 LS I * US$ 0.77 WB Appraisal Report

Swaziland e eo 69 e 236 271 E 2150 2472 1981 E I , US$ I.IS Gov't of SwazilandSector Study

Tanzania S 284.9 34 S 6860 823 S 81743 9809 1981 S I . USS 0.12 WI Appraisal Report

Uganda S 5b9 6 S 4095 41 S 231258 2313 1981 S I uS$ .01 Unesco Sector Report

Zaire _- - - - -

Zambia K 62 71 K 331 381 K 3260 3750 1980 K I US$ 1.15 WB Appraisal Report

Zimbabwe Z$ 98.8 136 Z$ 779 1075 ZS 8030 11081 1981 ZS - US$ 1.38 WB Sector Memorandum g

Average 71.5 340 4225 F'

I . . _ _ _ . ^, _ . . .~~_ _ _ _ _ _ _ __ I _ D

1/ Not including foreign teacher salaries.

Date: September 29, 1983

54 Table 4

?OS-DEPART. EXTAL COSTS IBY COP0IXCT AT TI-C ATImNAL MlVERSITY OF LESOTNBO 1982-83

SalezL.uI Fereamm Eqipent Department ard Related naterial and Not

______________ Alloeazos ZrZpens S3ppUle* Sorvice Publicatijni Total Sales Exp_nditra_

Agmiuiatrution 75,079 7,179 187,452 59,524 11,90 817,932 33,30 7"0592Maiatenane 478,939 28,866 182,51.0 56.564 74 ,909 2358726 3,ia

Library 234,871 1,025 2,745 2,081 139a77 380,599 959 379, L0

Lfcalilstlen 367,881 277 311 2,25C 370,725 - 370,725

14uael Staff Houalns &Coamutiac Allooae _ - - 370,000 Il _ 370,000 - 370,000

1lectriolty, matr et3. _- - 3X7,025 2/1 - 347,025 - 3.7,025

Special Acoount 22,862 295,512 2,000 320,-74 _ 32),374(pssaem)

Residence& 213,735 441 47,3516 1,784 10,934 274,248 - 274,2.8

Ret.ctory 163,652 4,192 812,473 15,621 15,752 1,041,690 770,000 271,690

In.tItatea 131,283 12,608 6,399 2.698 2,659 155,64.7 - 155,64.7

Printing 68,72. 818 116,479 -11.357 500 175,161 172,419 2,745

bock Store - - 99,330 7 - 99,337 115,24.4 -15,907

rows attributable to utudente 2,210,026 413,918 1,147,513 789,S99 238,19 5,099,6o50 1,325,68B 397739%2

Lastitute of Extra-..ural Studiec 215,573 21,365 10,731 3,465 -29 251,105 199 250,906

Other Ins5itucts 131,283 12,600 6,399 2.698 2,659 155,647 5,371 150,276

Primary Scalcl _2.66. i6s8 12.St5 1 n -_ 0.2351 15,214 6'019

_I__LS _ 2.619.522 _ ae) % 2. 1,4771.1.01 0 1,15.6.1,72 j.2W163

Source: Flles ef the Mlinistry of Education, SporLs and Culture. Itaseru.

Date: Yarch 1. 1984

!:otes.: I/ TIw !37.0,000 annual. rcnt on leased staff Iwusin: WBb deducted fron 'Administration:

scparatel' aFb this is nut attriLutatlc ttr VIIvmrsity Adminiszration:

'/ This figur. ha! been taken c-ut of '!aintur.an::t 'and l'ited scparJte]y a5F ele..triCity,water and otiter services since they are not really charces to lniversity 'Maintenanfee.

3/ This figure is drawn from 1983-84 since the 1982-83 figures did not adequately accountfor student payment for aueals.

55 Table 5Page 1 of 2

DEPARTMENTAL COSTS BY COMPONENT

AT THE NATIONAL UNIVERSITY OF LESOTHO, 1982-83

Salaries Equipment

Depa.rtwesi and 7ravel teiatrl 6erviccs 4MLI Totals.__________ __ .Allowancei- Supplies ?ublications

Foculty ofScienee

Blology M 168.503 M538 M 3.523 11.592 M 11.492 M185,548

Pharmoceutics 480? 0 164 - 89 891 1,446

Chemistry 125.441 218 5.687 1.409 13.165 145.920

Physics 119.214 124 4.0G8 8SS 13.512 137,713

Physical ..Geography s below

Maths IComputer Scd. 144.076 g66 22 7,084 3,406 156,054

FacultyOverheads 17,471 921 6.209 15.449 352 40.402

Sub-total 575.185 i.767 20.113 26.300 42,818 667.183

Faculty ofSocial Sciences

Economics 109.418 1,152 19C 2,175 435 113.370

BusinessAdmdnistration 82.804 2,792 2.528 1.924 729 90.777

Land -Use* Flanning see below

Statistics a3.861 140 580 10.217 - 463 94.335

Social Anthr-opology &Sociology 64,131 1.535 3.791 488 699 70.642

Political &Adcdn.Studies 111.796 113 810 917 349 113.985

FacultyOwvrheads 23.600 595 , 2.391 1.551 13 28.150

Sub-total 475,610 6.327 10.290 17.270 1,762 511.259

- 56 - Table 5Page 2 of 2

DEPARTMENTAL COST BY COMPONENT

AT THZ NATIONAL UNIVERSITY OF LESOTHO, 1982-83

De~artrnenZ ISalaries IIateria.-. Sevce quipmer.tenOartment I and -ravel S li ervices and Totals

Allowances S piZ UUIJ.L4.4LL.L.

Faculty oIHumanltlss

AfrlcanO v.Iopmmnt 3a.363 391 1.254 S6Z 1.471 42.061

Africon LAngI Llt. 70.726 337 649 163 0 71.697

Hmamn Geog. am below

FkgnCh 31.253 80 458 14 S9E 32.401

Hlatory S1.151 1.053 1.226 1,044 63 84.537

English 15.867 92 1.S80 6.231 926 160.596

Philogophy 39.716 0 238 184 37 40.175

Theology 34.809 a 301 660 0 35.790FacultyOwerheads 14.041 0 * -575 265 S95 14.429

*ub-tatal 461.948 1.953 S.131 9.166 3.788 486192a

Faculty o0fEducatifon

EaducatiornalFoundations 64.61 4.624 1.2S6 9.064 480 79.75S

Language 1Social Ed. 59*457 1.607 1.1t0 1.557 1.248 75.229

ScienceEducation 89.30a 1.109 S.15t 410 639 95.517

FacultyOverhadS 22.509 1.627 3.098 -2.001 2.567 29.461

sub-total 245.635 9.167 10.565 10.631 4.734 2S1,032

Faculty of MO0.934 1.783 5.76 2.017 5.940 216.442Law _

Departm,ent of ioa.oo9 795 3.268 4.017 7.300 123.36S

Geooraphy 1/

TOTALS M 2. 0 6 7 .321 912.792 jP5.23s M o9.t01 MH. 346 M22 26 1. 191

Percentage of 31 0 0 1.0 1.0 34Total UniversityCosts

Source; Files of the Ministry of Education, Sports and Culture in MaseruDate: March 1, 1984

1/ Department of Geography is located in the Faculty of Science,Social Science, and Humanities and is here presented separated.

Table 6

NUMBER OF STAFF IN OVERHEAD DEPARTHENTS, NUL, 1983-84

Salaried iage TotalDepartment Staff Staff Staff

General Administration 24 47 71Vice-Chancellor 4 2 6Registrar 7 23 30Security - 13 13Student Affairs 4 2 6Bursary 9 7 16

Malntenance 5 127 132Departuental Office 4 6 10Stores 1 14 15Garage - 21 21Building _ 26 26Electrical/Idechanical - 38 38Roads/Grotods - 22 22

Residences 2 89 91Hostels 2 64 66Laundry - 22 22Warlen - 3 3

Refectory 1 52 53

Printing - 17 17

Library 15 15 30

Localization 42 9 51

TOTAL 89 356 445

Source: IUL 1983-84 Budget

Date: April 10, 1984

POTINTIAL gAVIInS ON NON-DpATIaNTAL COSTs9 NUL

(FRA333A Y 1964 RSTIMATPS)

Budget Leased Primry Maintenance Stude t Localisation InItitute of Iitte.fCodes HousLug School Store Garage Residences Training Refectory Printing Sookatore Rducation Labor Studieh

101 Salaries 10,000 62,000 70,000102 WVaes '/ 15,000 20,000 40,000 100,000 50,000 4,000 6,000104 Comuting Allowance 60,000 2 000 2,000105 Housing Allowance 3,0W 4,000111 Pension Plan 2,500 3,500 7,000 6,000 10,000 7,000

50 000 3 8,000 4/113 Travel (5,000) 3,000 2,000121 Consumable SuppiLes 25,000 20,000 4,00 3,000122 Fuel 12,000 1,000125 Goods for Resale 115,000 40,000 15,000126 Food 900,000131 sIectricity of water 75,000133 RepeLre (15,000) (debit on proposed 52 now unite) 10,000135 Rentals Paid 325,000140 Equipment (20,000) (once and for all sale)035 Sundry Revenue 75,000 (100,000) (50,000) 200,000 (770,000) 30,000 20,000

Total net improvement 370,000 2/ 75,000 57,500 "6,SOO 262,000 100,000 315,000 30,000 20,000 88,000 103,000

Percentaeg of total. annual savlngsof ?I1379,000 25 5 4 1 7 21 2 I 6 7

Notes; 1I/ WIL gradually Increase through attrition. 4/ Crotulties 2/ To be used to build new housing3/ Cherges to other departmentsttems in parenthesis are defielts or the reverse of savings.

Ibese savings equal 16Z ot the Universaty's 1983/84 expeadituce. About 15X of tha total savings would have to be usedto finance the construction of 52 new on-campus houses and this reduces the annual saving from 16 to 14Z.

The figures given here do not correspond preclely to the estimates given In Tables 2 and 3 u they were provlded by the UniverlityBursar in February 1984 as against the etimates for the acededic year 1982/83.

Datel April 30, 1984

- 59 -Table 8

UNIVERSITY OF LESOTHO

STUDENT-TEACHER RATIOS, 1983-84

Faculty Department Student StaffFTE 1/ No. 2/ Ratio

Education Educational Foundations 66.1 6 11.0Language & Social Education 31.6 5 6.3Science Education 16.6 5 3.3

114.3 16 7.1

Humanities African Development Studies 38.9 1.5 25.9African Languages & Literature 29.2 5 5.8English 121.4 9 13.5French 7.4 2.5 3.0History 20.1 5 4.0Philoso.ly 15.4 2 7.7Theology 8.4 2.5 3.4

240.8 27.5 8.8

Law Law 144.3 12 12.0

Science Biology 64.6 7 9.23/ Chemistry 64.4 6.5 9.9

Geography 35.1 6.75 5.2Mathematics & Computer Science 99.2 9 11.0Physics 50.4 5.5 9.2Pharmaceutics 11.0 2.5 4.4

324.7 37.25 8.7

Social Business Administration 120.9 7 17.3Sciences Economics 61.6 4 15.4

Political & Admin. Studies 87.5 7.5 11.7Social Anthropology/Sociology 36.3 4 9.1Statistics 60.9 5.5 11.1

367.2 28 13.1

NUL 1191.3 120.75 9.9

1/ Full-Time Equivalent (FTE) equals total student credit unitsdivided by 36

2/ Average number of staff members per semester3/ Excludes Land Use Planning, taught by outside staff

ACADEMIC STAFF INSTRUCTIONAL WORKLOAD, 1583-84

AVERAGE WEEKLY CONTACT HOURS

_ _____ First Semester _ Second Semester_ AvergeFaculty/Dept Lec Tut Prc Tot Lec Tut Prc I Tot Lec Tut Prc Tot

Education:Ed. Foundations 6.2 4.3 1.3 11.8 5.5 6.2 1.1 12.8 5.8 5.3 1.2 12.3Lang/Social Ed. 7.3 2.5 .5 10.3 7.5 7.0 4.3 18.8 7.4 5.2 2.8 15.4Science Ed. 6.5 5.3 4.0 15.8 6.2 3.6 3.5 13.3 6.4 4.2 3.7 14.3

6.6 4.1 1.8 12.5 6.4 5.6 3.0 15.0 6.5 4.9 2.5 13.9

Humanities:African Dev. 5.0 10.0 15.0 8.5 12.5 .5 21.5 7.3 11.7 .3 19.3African Lang/Lit. 7.8 2.2 10.0 6.0 1.6 7.6 6.9 1.9 8.8English 9.0 9.0 4.7 .3 .3 5.3 6.6 .2 .2 7.0French 10.0 5.2 15.2 12.4 12.4 11.2 2.6 13.8History 5.0 1.6 1.4 8.0 3.6, 1.2 4.8 4.3 1.4 .7 6.4Philosophy 8.5 8.5 7.5 7.5 8.0 8.0Theology 5.0 _4.0 9.0 5.7 4.0 _9.7 5.4 4.0 9.4

7.6 1.9 .3 9.8 5.9 1.8 .2 7.9 6.7 1.9 .2 8.8

Law 7.3 2.1 1.2 10.6 6.3 1.3 7.6 6.8 1.7 .6 9.1

Science:Biology 3.8 7.5 11.3 3.5 8.3 11.8 3.7 7.9 11.6Chemistry 3.4 8.3 11.7 3.2 2.6 5.8 3.3 5.5 8.8Geography 7.4 1.4 8.8 5.7 1.3 7.0 6.5 1.3 7.8Mathematics 5.8 3.9 .8 10.5 6.3 4.6 10.9 6.0 4.2 .4 10.6Physics 3.3 2.0 10.0 15.3 4.4 2.5 8.4 15.3 3.8 2.2 9.3 15.3Pharmaceutics 4.7 .3 4.0 9.0 5.0 1.5 6.5 4.8 .2 3.0 8.0

4.9 1.4 4.9 11.2 4.7 1.3 3.8 9.8 4.8 1.3 4.4 10.5

Social Sciences:Business Adm. 8.0 13.4 7.3 28.7 9.4 15.9 9.0 34.3 8.7 14.7 8.1 31.5Economics 7.5 1.0 8.5 9.0 2.0 11.0 8.3 1.5 9.8Pol/Admin. Studies 4.8 3.3 .7 8.8 6.0 1.5 .3 7.8 5.5 2.2 .5 8.2Social Anth./Soc. 6.5 8.5 15.0 7.8 4.5 12.3 7.1 6.5 13.6Statistics 6.4 .3 1.9 8.6 8.6 .8 2.0 11.4 7.4 .5 2.0 9.9

6.6 5.7 2.5 14.8 8.0 5.3 2.6 15.9 7.3 5.5 2.5 '15.3 rNUL 6.3 2.9 2.6 11.8 6.1 3.0 2.2 11.3 6.2 2.9 2.4 11.5

AVERADE ENROLL¢NEW IN 00URSES, NUL, 1983-84

100 Level 200 Level 300 Level 400 Level TotalNumber Number Number Number Number

SUBJECT of Average of Average of Average of Average of AverageCouraes Enrollment Courses Enrollment Courses Enrollment Courses Enrollment Courses Enrollment

African Languagea 2 9 9 17 6 14 7 14 24 15Biology 3 57 3 40 6 30 5 17 17 33Chemistry 1 141 3 48 4 24 4 11 12 35English 3 118 5 29 10 17 7 8 25 29Economics 2 44 4 48 3 29 6 7 15 27French 4 16 3 4 1 5 3 3 IL 9EducAtional Foundations 1 59 12 32 2 58 8 39 23 38History 2 21 2 21 7 20 1 10 12 20Human Geography 2 10 3 22 5 6 3 5 13 10Law 4 19 4 67 4 33 21 1/ 191/ 33 27Language Educatlon - - 4 9 4 17 4 27 12 ISMathematics 5 93 4 33 6 30 3 8 18 40 a,Physics 1 123 2 38 5 15 8 6 16 20Physical Geography 1 41 4 19 4 14 b 7 15 12Philosophy 2 34 4 42 5 10 - - 11 17Statistics 3 58 8 49 9 10 4 14 24 30Social Anthropology 1 62 4 33 6 22 ' 6 20 17 26

and SociologyTheology 1 22 4 13 3 10 3 6 11 9Science Education 4 19 7 12 6 8 5 4 22 10Social Education - - I 1 5 13 7 9 13 10Pharmaceutics 4 14 4 10 - - - - 8 12African Development 2 145 1 25 3 28 3 12 9 50Political Science 1 55 2 45 5 19 2 18 10 28Public Administration - - 2 94 2 46 4 32 8 51

ineus Aditn1atration 1 99 2 60 4 58 11 21 18 39Computer Science 1 41 2 48 3 10 1 4 7 25 a

Laud Use Planning 10 / 5 2/ 10 5

TOTAL 53 5U 103 32 118 20 142 15 414 25

1/ tnclude 500 and 600 level courses.

2/ 500 Level coursee.

Date. April 30, 1984

- 62 -Table 11

VALUES OF CAPITAL, 1981 AND UPDATED TO 1984, NUL

Furniture Plant +Description Building + Equipment MacLinery Total

* Academic and Admi-nistrative Buildings M7,601,000 M2,270,000 M139,000 M10,010,000

Halls of Residenceand Hostels M4,316,000 M292,OOO _ M4,608,000

Staff ResidentialQuarters M4,636,000 MX455,000 _ M5,091,000

M16,553,000 M3,017,0OU M139,000 M119,709,000

Bloemfoctain BuildingCostInf lat ion Adjustment1983 (+ 34%) M22,181,000 M4,042,000 M186,000 1426,409,000

* Buildings added in 1984: New Admin. )Senate Extension) M800,000Upgrading )

Occupation by July 1984: Institute Extra-)Mural Studies ) M1,000,000

Note: In addition, the cost at 1984 prices of replacing infrastructure isestimated as follows: sewage, M830,000; water supply, M1,000,000;roads and drainage, M360,000; street lighting, M60,000; total,M2,250,000.

Source: Office of the NUL Physical Planner

Date: March 1, 1984

Table 12-63 - Page 1 of 2

CLASSROOM AND LABORATORY USAGE

RATES NUL 1983-84

Room Weekly Weekly (1) x (3)Capacity Enrollment Use Room Use (2) (5)

Building Room No. (Seats) (Students) (Periods) (2) Seats/Week St/Seats, WeekClassrooms (1) (2) (3) (4) (5) (6)(45 periods per week)

Thaba Bosiu 103 32 802 28 28 62 896 0.89104 32 449 34 W5 76 1088 0.41105 32 798 39 87 1248 0.64106 32 488 32 71 1024 0.48111 32 449 36 80 1152 0.39112 32 626 35 78 1120 0.56113 32 558 35 78 1120 0.50114 32 337 29 64 928 0.36

4507 74.5 8574 0.52 (52%)

102 56 667 37 82 2072 0.32107 56 864 33 73 1848 0.47110 56 815 36 80 2016 0.40115 56 904 35 78 1960 0.46

3250 78.25 7896 0.41 (41X)

101 72 1078 38 84 2736 0.39108 72 1125 40 89 2880 0.39109 72 1031 32 71 2304 0.44116 72 1029 35 78 2520 0.40

4263 80 10440 0.40 (40%)

117 84 1602 35 78 2320 0.40118 84 1334 27 60 2940 0.54

2936 69 5460 0.47 (47%)

Lecture 130 944 19 42 2470 0.38 (38%)

-64 - Table 12Page 2 of 2

CLASSROOM AND LABORATORY USAGE

RATES, NUL, 1983-84

Room Weekly Weekly (1) x (3)Capacity Enrollment Use Room Use (2) : (5)

Building Room No. (Seats) (Students) (Periods) (Z) Seats/Week St/Seats, WeekClassrooms (1) (2) (3) (4) (5) (6)(45 periods per week)

Boitjaro:Biology 24 131 18 40 432 0.30Physics 24 171 13 29 312 0.55Maths 30 103 12 27 360 0.06Workshop 24 24 15 50 360 0.06

Science 28 45 710 31 69 1395 0.5129 45 637 35 78 1575 0.40

Lect. T. 226 1679 23 51 5198 0.32

Biology Labs15 32 408 18 60 576 0.70

18 32 393 21 70 672 0.5825 38 375 18 60 684 0.54

Physics LabsI 24 120 18 60 432 0.28

II 16 48 9 30 144 0.33III & IV 12 72 18 60 216 0.33

Chemistry Labsj I 31 141 15 50 465 0.30

I II 22 57 9 30 198 0.28III 24 70 20 67 480 0.14IV 12 40 15 50 180 0.88

Phys. Chem 18 20 8 27 144 0.14

All labs assumed to be allocated thirty hours per week excluding preparation and clearingtime, which varies from two hours in some first year courses to four hours in some thirdand fourth year courses.

- 65 -Table 13

E1PLOY?NT STATUS BY SEX AND FOR

TOTAL POPULATION, LESOTHO - L975-2000

000's

Work Force Status 1975 1980 1985 1990 1995 2000

1. Working Age Population b51.9 747.4 829.4 923.6 1041.2 1177.8(15-64)

2. ntimated Not in Labour 90.0 103.2 114.5 127.5 143.7 162.6Force -

3. Total Labour Forc 561.9 644.2 714.9 796.1 897.4 1015.2

4. Employed in RSA 168.0 150.4 148.0 132.0 120.0 108.0

5. Total Domestic Labour 393.9 493.8 566.9 664.1 777.4 907.2Force

6. Employed Wage Sector 30.0 41.3 50.9 61.5 72.7 84.0

7. Residual for Informal 363.9 452.5 516.0 602.6 704.7 823.2Sector and Agriculture

8. Estimated Informal Emp. 25.0 30.0 35.0 40.0 45.0 50.0

9. Residual for Agriculture, 338.9 422.5 481.0 562.6 659.7 773.2Unpaid Family Workers,and Public Works/Foodfor Work Programs

Ratio, (7):C3) 64.8 70.2 72.2 75.7 78.5 81.1

Ratio, (9):(3) 60.3 65.6 67.3 70.7 73.5 76.2

000'sQu.noue=r±a2 Cbsinp e1975-80 80-S 85-90 90-95 95-2000 75-201. 6, Domestic I)osr Yorco 89.9 83.1 97.2 113.3 129.8 513.3

2. a, Employed Wage Sector 1t.3 9.6 10.6 11.2 11.2 54.0

3. a. Residual for Informal 78.6 73.5 86.6 102.1 118.5 459.3Sector and Agriculture

4. , Employed Informal 5.0 5.0 5.0 5.0 5.0 25.0Sector

5. A , Residual for Agri- 73.6 68.5 81.6 97.1 113.5 434.3culture, etc.

8Proportion for 1975 applied to all other yeurs.

Cro.th arbitrarily set at 5,000 per quinquenni=i, divided 40:60 male:fMI l.

Source : Table 5.1 in Buriw. a. 152

SUPPLY ANI) DItAND FOR AGRICULTURAL TECHNICIANS

1981 1982 1983 1984 1955 1986 1987 1988 1989 1990!utension Serviced

Posts 6vaIlable 1200 225 250 275 300 300 300 300 300 300

Posts filled at beginning of each year 167 189 216 244 275 273 2f1 287 297 300

unmet nemand

atxension Services (deficit at start of 33 36 34 31 25 27 19 13 3 0each year) 2

RAnge Management 10 10 10 10 10 - - - - -Agricultural Information 2 - - - - - - - e -Certificate in Foreetry 4 5 5 - - - - - - -AJdditonl Extena on Services Attrition at 52 8 9 11 12 14 1b 14 14 IS 15of filled poutso

Training Attrition at 3t 5 6 6 7 R 8 a 9 9 9 %TOTAI Unmet Demand 62 66 66 60 57 49 41 36 27 24

Output l.AC/Leribe 57 57 60 60 30 30 30 30 30 30iShortfall (-) or Surplue () (Assumed to be ab- -11 -9 -6 0 -27 -19 -11 -3 +3 #6sorbed entirely by Extenalon Services; hence

for 1981 of the 33 vacancies 11 remain unfilled).

IAsumcs MOA funds available for additional posts.2 Incitides mountain areas: 220 needed for BASP areas.

Figure derived from examinnttion of all staff recruited from tAC 1975-80 Inclusive.So!Ur 'U: kilble supplied by John Milne, Ministry of Agriculture, BASP. and reproduced In Burke f 2, p 106

V:ll Ma;rchl J, I\JD4

- 67-E?EPLOYMENT AND TRAINING OF BASOTHO Table 15

SCIENCE GRADUATES, 1967-1980/81

irmernational Standard Period TotalsClassificatiar of 1967 - 19e/81

:)ccupatious (ISCO): ISCO _ fMam-n Categories (1) Code Trained In Train.. Enployed o.tal

E F N E L N

Arc:hirects, Engireers,Survey=s 0-0 3 0 3 12 3 0 3 1 1Physical Scientists 0-1 2 0 2 S 9 3 6 1 10PAirieu1tuaJ Worke 0-2 7 1 6 1 10 55 1 15Physicians, Surgeos,Phumaists 0-3 12 1 1 8 11 0 11 4 15Other ProfessicnalMedical Warkers (2) 0-5 6 0 6 8 6 .0 6 - 14Teacierzs and OtherProfessional EducationLobrkers 0-6 10 1 7 701753 ' 56

Librarians 0-Y3 --- 1 _ - 1

Ecanis.is & Statisticians 3 0-Y4 3 0 3 3 4 1 3 _ 6Ca:7pter Progmue 4 -YS 1 0 1 2 1 0 1 - 3

Oth.Ler Govt.A k i& satos" 1-0 _ _ _ 3 0 3 - 3

Businessmen 1-1 - - - _ 3 0 3 - 3

Total (EMplyed) 44 3 41 57 120 259g 13 140In T'ai 57 -

Unemployed (S) 2 _

Unkfocn 7 I

(6) 16 _ _Toral (All) 6 . . 160 12

NL=ber Working Abroad (NWA) 11

CD): Codes teuisnated with an X are in addition to the ISCO l0no GrOupCodes.

(2): 'Other Pfroessicnal Medical Workers' excludes nurses arm: midwives which fall urder aseDarate catego!y code 0-2.

(3): '0ther EccniLsts and Statisticians' excLdes ecamanists/statisticians in. Health andEdctial.

(4): 'Other GoVernnt AdminisTrators' excludes administrators in Agricujlure, Education ardHealth.

"c): lUn.'l1yed includes housewives

(6): Total (All) _ HJ.t BoDlyed Tn TraIj g + Unmnmloyed + Unknon.

(7): E: Entering :aining or emynt; F: failed trai;ing programnr; L: left e!1c5m=entN: net nu.mber trained or ermloyed (E-F) cr (E-L).

C 0: .Ru Total = Ner Ecployed + In Training A

NO=: CBLS = University of Botswana, Lesotho and Swaziland

3ource: Burke

Date: April 15, 1984

- 68 - Table 16

BUDGETS FOR TRE INSTITUTES OF EXTRA MURAL STUDIES (IEMS),

LABOUR STUDIES (ILS), SOUTHERN AFRICAN STUDIES (ISAS),

AND EDUCATION (IE), 1983-84

IEMS ILS ISAS IE

Salaries M240,664 M66,130 M85,476 M61,686

Allowances and Pension 63,968 24,579 22,540 15,023

Total Salaries andAllowances 304,632 90,209 108,016 76,709

Wages 10,488 5,880 7,308 4,536

Operating Costs andConsumables 76,883 14,143 14,000 6,500

TOTAL M392,003 M102,889 M148,535 M87,745

Grand Total M731,172

Number of Staff 22 7 6 5

Average Salary per StaffMember M10,939 M9,447 M14,240 M12,337

Average Salary andAllowances per StaffMember M15,751 M12,958 M21,204 M15,342

Source: NUL Budget Estimates

Date: April 5, 1984

DAWI*NIM AND GRAWUKAES AT NAnIt&L TEAGIER TRAINIW, OJII

1975-1984

Primary Teawkers ertificate Advanced Primary Teadrxs Certificate Semndary Teahers Certificate In-Service Trainlt 1/Year Year Year Year

Year 1 2 3 Graduates 1 2 3 Graduates 1 2 3 Graduates 1 2 Graduates

1975 37 - - _ 13 - - _ 29 _- - - -

197b 155 33 - - 38 13 - - 98 26 - - 129 - _

1977 18U 141 32 29 36 23 26 26 97 93 25 27 - 113 -

1976 186 174 134 122 39 - 58 54 46 96 90 83 366 - 100

1'I79 ;21 165 IW 161 14 34 2 2 81 37 91 92 - 0 -

1 fi(1 242 198 181 175 32 11 37 36 80 71 42 41 462 - 292 °

1981 263 235 203 187 50 28 14 15 86 65 74 72 216 220 -

1NU12 267 LW 235 224 51 50 30 30 80 85 75 72 180 310 479

1963 10 29b 238 - 22 51 46 - 70 87 82 - 173 313 -

1/ LLE@r Limotho Irr6ervice Edc^Ation for TeadraSurce: NlMR figuresLte: crdh 21, 1934

- 70 - Table 18

CALCULATION OF STUDENT-TEACHER RATIOS AND UNIT COSTS

NATIONAL TEACHER TRAINING COLLEGE, 1983-84

Enrollment;

on-campus 638off-campus 434

Tocal 1072

Teachers:

on-campus 66off -campus 31

Total 99

Student-teacher Ratios:

on-campus 1:9.7off-campus 1:14.0

Total 10.8

Costs;

(a) Total costs (est.) M1,290,860Cost per student (unadjusted) M1,204

(b) Difference between salarypaid to student teachers(M600 per year) and salarypaid to untrained teachers(M11,200 per year) for 434student teachers 1260,000

(c) Tuition paid by students540 boarders at M300 per year M162,00098 day students at M210 per year M21,000

Total tuition M183,000

(d) Total net cost (a- b- c) MW47,860

(e) Cost per student (revised) M704

Source: NTTC and National Budget Figures

Date: March 10, 1984

STAFF REQUIREHENTS FOR

NATIONAL TEACHER TRAINING COLLEGE, 1983-84

No. of No. of Suggested Additional Total ActualContact Staff Average Staff Number Number

SUBJECT Hours Required, Teaching Required, of ofRequired, Pre-Service Load In-Service Staff StaffPre-Service Program (Hours per Program RequiredPrograu Week)

Professional Stud 4 es 103 9 11.4 2 11 10English 112 8 14.0 1.5 9.5 9Lesotho 85 6 14.2 2 8 9Science 72.5 5 14.5 - 5 6Social Studies 70 5 14.0 - 5 6Mathemiatics 70 5 14.0 i.5 6.5 6Agriculture 60 5 12.0 - 5 5Home Economics 38 3 12.7 0.5 3.5 3Rqligious Education 26 2 13.0 0.5 2.5 2Commercial Studies 21 2 10.5 - 2 3Arts and Crafts 20 2 10.0 - 2 1Health 17 2 8.5 - 2 2Music 17 2 8.5 - 2 1Physical Education 17 2 8.5 - 2 1Elementary Technology 14 1 14.0 - 1 2

TOTAL 743.5 59 12.6 8 67 (6

Source: Data prepared by Mr. Mathot, LIET Program, and mission estimates p

Date: March 21, 1984 .

- 72 - Table 20

ENROLLMENT, TEACHERS AND STUDENT-TEACHER RATIOS

LEROTHOLI POLYTECHNIC INSTITUTE, 1983-84

Students Student-School or Department Year 1 Year 2 Year 3 Total Teachers Teacher

Ratio

Technical Traintng School 30 28 20 78 9 8.7/1

Technical InstituteElectronics - 8 - 8 2 4/1Tailoring, Dressmaking, 34 - - 34 3 11.3/1

UpholsteryBricklaying 15 17 - 32 3 10.7/1Plumbing 13 14 - 27 4 6.8/1Carpentry and Joinery 11 17 - 28 4 7/1Electrical 12 11 - 23 3 7.7/1Engineering 38 27 31 96 12 8/1

Subtotal 248 31 8/1

.Cmmi-real TrainitgInstitute 59 57 _ 117 10 11.7/1

(216)* (22/1)*

TOTAL 442 50 8.8/1

* Including part-time studies

Source: LTI and Ministry of EducationDate: April 4, 1984

- 73 - Table 21

RECURRENT ANNUAL COSTS FOR NON-SALARY ITENS,

LEROTHOLI TECHNOLOGICAL ENSTITUTE, 1983-84

Spares Replacement Trainingand of Hand Materials Total

Maintenance Tools

Technician TrainingSchoolTotal M4,080 _ 15,476 M10,860 1Average per Student M51 M k68 M136

Lerotholi TechnicalInstituteTotal M22,100 M8,400 M86,820 M166,676 1Average per Student 184 M33 M340 M653

Coumercial TrainingInstituteTotal 1M5,500 M900 11,800 M13,200 1IAverage per student ! 25 M4 MB M61

I/ Including utilities

Source: HOE Technical/Vocational Education SectionDate: April 3, 1984

- 74 -

Table 22

PLACEMENT OF 1983 GRADUATES

LEROTHOLI TECHNICAL INSTITUTE

Activities after Graduation

Employed Abroad Further Unemployed Employed Self-Specialization Outside for Education or Dropped in Employed Total

Lesotho Studies in Lesotho Out Lesotho

Fitter 2 - 2 2 8 _ 14Auto Mechanic 2 1 3 - 9 - 15Panel Beater - - - - 4 1 5Electricity I - 1 2 2 - 6Carpentry andJoir.ery - - 2 5 5 1 13

Plumbing 5 - - 1 3 - 9Building 4 - 2 - 9 - 15Technical Teachers 2 - - 2 25 - 29Electronics 1 1 - 1 6 - 9

Total 17 2 10 13 71 2 115

Sources: LPI Acting Principal and Vice-PrincipalDate: April 3, 1984

- 75 -

Table 23

BUDGET, LESOTHO AGRICULTURE COLLEGE,

1983-84 MND PROPOSED FOR 1984-85

Estimates RevisedSubheads 1984/1985 Estimates

1983/1984

R R

Personal Emoluments 470,900 386,780Salaries (Established) (423,806) (345,080)Wages (Established) (33,348) (30,380)Allowances (13,744) (11,320)

Travel and Transport 21,960 21,960

Of f ice Administration 40,800 40,800

Other Operating Costs 123,700 123,700

Drugs and Dressings 1,570 1,570

Special. Expenditure - 2,600

TOTAL 658,930 577,410

- 76 - Table 24

INCOME AND EXPENDITURE, THE INSTITUTE OF DEVELO-.-MENT

MA14AGEMENT, 1980, 1981, AND 1982

(P /M/E 000s)

1982 1981 1980

INCOME:

Student course fees 674 678 594Seminar and conference income 13 13 15Consulting income 19 33 20Subvention from host government 122 98 75Donor support funds 96 83 37Sponsored posts 137 164 274Other income 21 31 39

TOTAL INCOME 1,082 1,100 1,054

EXPENDITURES:

Staff costs 330 260 175Sponsored posts 137 164 274Travel accommodation 46 112 76Participants' costs 186 276 188Course expenses 30 72 34Advertising 11 8 14Bad debts (recovered) (56) 64 275Bank charges and interest 3 1 2Governing Board fees and expenses 5 17 14Currency exchange losses 11 - -Depreciation 24 24 21Equipment rental 1 - 2General expenses 3 9 3Insurance 2 1 1Loss on disposal of fixed assets 9 - -Motor vehicle expenses 20 22 16Printing, postage and stationery 30 31 28Repairs and maintenance 12 4 15Research costs 4 32 -Telephone and telex 17 12 11

TOTAL EXPENDITURES 830 1,117 1,154

Surplus (deficit) for the year (17) (100)

Source: Institute of Development Management, Annual Report,1982, p. 5.

Date: March 20, 1984

- 77 - Table 25

SELECTED COU!1SES TAUGHT BY THE

INSTITUTE OF DEVELOPiiENT 1ANAGEMENT, 1982

COURSE: LENGTH PARTICIPANTS(weeks)

BOTSWANA:

Certificate in Local Administration 4 20Public Relations 1 14Training of Trainers 10 9Manpower Planning 2 12Job Evaluation 2 9Certificate in Management 5 77Certificate in HealthlNursingAdministration 24 17

Organization and Methods 10 29

LESOTHO:

Better Work Methods 2 23Hanagement Information Systems 1 14School Administration 4 25Records Management 1 31Basics of Finance 3 13Performance Appraisals Systems 1 8

Si7AZILAND:

Certificate in Personnel Management 24 20Management by Objectives 1 17Organizational Behavior 1 16Intermediate Finance 3 20Prcduction Management andCost Accounting 2 13

Senior Finance 4 7

Source: Institute of Development Management, Annual Report,1982, pp. 9-11.

Date: March 20, 1984

- 78 - Tab..e 26

POPULATION, ENROLLENT AND COST PROJECTIONS

BASED ON DIFFERENT FERTILITY ASSUMPTIONS,

PRIMARY EDUCATION. LESOTHO. 198t-2015

CONSTANr 71tt1.T1T

Colunty Tear Total slhee-o^Aq Conetalt V.P.?. by Nutmea Q1C Nmbec of Cgvernmenu Ceve:mu.a£Fepultlule Fepelaliea mnre.lt.o" yeart ZO60 rachets Teachers CIseaste lag,n...(Ilge) Rate.se. oIleption I Laquated %equired option A Opties I0:491 ~ ~ ~ ~ ~ ~ ~ ~ ~ 66.6e1166.19# a

0!111A 40GOOd to glies Al (Optics a *g 1 l *. 16caCoriae?) Cetrencri

Ila Igoe 134£ :34 27£ a71 l166 2706 16.69 I 6 16.67 solow 1962 123 212 316 Ii4 6666 4636 12.47 I 11 'I.79 III

l.e Me 1175 226 Jim 246 Me 7130 36.61 129 13.14 its

Iea is ta i, 419 481 1`646 al66 *i.61 iw a.# all

too 2066 2464 417 632 441 ta6 1366 21.6. 19 17.i4 li

lag 2965 2634 541 623 134 13206 li1l 34.96 233 21.64 £46

log 21 3164 614 7Is 446 12606 12466 27.69 271 321.25 2i

lee 2615 4014 196 V16 174 s1te £1610 36.16 327 36.16 2s

INTICtKEDIA *1 1E tTUL11Y DtCLI:x

Ceustti liar Total Schoel-Aqe CoasatasS V p C. by Musmer at MasSer of GCewralitt G.r2egtpuIa Aia efeu.lot:7 C 1.rellment Year to000 .a CheuC 7aies p Ts 1 X.:

1666.3 (SlsE) Rat &6 Option I Requird leqar'sed u.n A on s a tleooa '4Opltin A legiA olo? lOptien &I (option ) toca.160. :6.:iovs(lGe) .of Locel 'a Local

Cut:asgl) Curilacy)

lee 1ie0 124£ 224 211 sit 17*e 554 16.67 lo6 t2 17 s0

lag 1701 1ss1 273 216 364 4666 6360 11.47 t16 11.t9 1I2

top 1170 M7t 326 378 248 7960 7360 14.67 137 £1.74 t23

lag £913 26 376 419 465 f#46 3500 18.01 167 15 .9 149

tel 2206 2360 417 233 447 £1666 9340 169.05 1,1 17.64 £44

'of 2301 2768 122 a61 51£. 13666 16876 : 3.61 z:6 36.15' I

Iee lia 3061 $31 641 I47 1355 11466 1:.16 232 21.t8 221

leg 3Q15 2416 ss5 440 S41 £3166 I1466 21.34 232 21.31 20t

RAPI0 FtZtTtLTY DUCLuIME

Ceuutry e Total ltaoI-Aq C ctast U S Number of Number at Coweraoastetewaatpopulation FeouaI4iea lErellment Year l200 Teachers Teachetis Zagaeaes 9epo Osi

(060.1i USg|s) Aia*io &sia 3 16421-6t Requar.i Optten A Opet o- aOptics A (loee ) l tOptios A) (OgtteUa I o060.4066 (040.10(BeOs) WI Locatl at Loe4

Corronea) CurrencyT

gem 1963 124 ' 334 271 a1l S766 1706 36.67 to6 16.6 1a6

ll 1985 , I352 273 116 204 6466 6310 13.47 £16 Ul9 all

as 299M 1716 322 371 46 li6s 72310 134.7 139 13.74 123

1ee 17S1 36S 358 - 412 266 side 7669 16.2 1532 14 41 121

leg t2ad 1994 214 364 367 7400 6466 £4.25 134 12.:2 112

lea z6os 0197 216 3226 27 6766 s16 12.61 1l? 10.61 VT

lo 2016 2226 21 296. 140 660 sl5e10 11.62 164 *.65 t9

Ids 2611 2375 367 332 23 6966 5lag £2.11 I1I 11.66 16

Note: Basic data for 1980: enrollment ratio, 116%; student-teacher ratio, 48:1;cost per student, r[39.4; school age population span, 6-12; estimated Dopulationgrowth rate 1980-85, 2.8%. Source is 'ME data and Bank copulation pro4ections.

Date: Ilazch 1, 1984

- 79 -

Econonmc consequences of Figure 1Net presont value Graduate Emigrat±on.of a Graduate'sLifetime Earnings

K

A _

iMP2(Dolsitic aforeign)

\Y/1PJ (Dourustic)

\Total nurberO . . ot worLng

E I 5~~~~~~~~raduates

- 80 - ANNEX 2Page 1 of 5

DESCRIPTION OF THE NUL'S DECISION-MAKING

AND BUDGET DEVELOPMENT PROCESSES

The National University Act 1976 (Act No. 10 of 1976) is thelegal foundation for the NUL. Predictably, Lesotho, as -Gsqt new Africannations, followed its colonial heritage and the NUL is modeled along thelines of a British university. It is a separate constitutional creationand as such it is theoretically fully independent of the Government.

The NUL's Formal Decision Making Process

The National University of Lesotho Statutes No. i-42 approved bythe University Council on March 11, 1977 spell out the specificorganization, powers, committees, et cetera of the Council and theUniversity. In accordance with these statutes, NUL is governed by aCouncil composed of: five persons appointed by the Head of State on theadvice of the Prime Minister; four persons appointed by and from thefull-time academic staff of the University; one student of the Universityappointed by the Students' Union; one person appointed by and from thenon-academIc staff; two persons having special competence in Universityeducation elsewhere appointed by the Chancellor after consultation with theCouncil and Senate; and a graduate of the University, appointed by theChancellor. In addition, the Chancellor of the University, who is the Headof State, the Vice-Chancellor, the Pro-Vice-Chancellor, the Superior ofPius XII College House, the Administrator of Pius XII College House, andthe President of the Students' Union are ex-officio members of theCouncil. The ex-officio membership of the Superior and Administrator ofPius XIl College on the Council can be explained by the fact that theCollege served as the embryo of the University. The Council also has thepower to appoint up to two additional persons to serve as members. Thus,the potential membership, appointed and ex-officio, can reach twenty-two.The appointed members serve for three years and can be reappointed foranother term. The Council appoints a Registrar to the University whoserves as Secretary to the Council.

The Board of Finance advises the Council on all financial mattersof the University. Specifically, it has among its powers to formulate andrecommend for approval the financial policy of the University; consider andrecommend for approval the estimates of income and expenditure required tocarry out the work of the University; review the recurrent and capitalexpenditure of the University; consider the financial implications ofproposals from the University administration and various committees of theCouncil and the Senate, as well as the Board of Management and the Board ofDevelopment; ensure the satisfactory audit of the accounts of theUniversity and to make recommendations to the Council; and recommend forapproval the Financial Regulations of the University. The membership ofthe Board of Finance includes the Chairman of the Council and Chairman; theVice-Chancellor; the Pro-Vice-Chancellor; one member of the Council who isa full-time member of the staff of the University, appointed by the Senate;one member of the Council who is not a full-time member of the staff of the

-81 - ANNEX 2Page 2 of 5

University, appointed by the Council; one member plus one alternateappointed by and from the non-academic staff; the Permanent Secretary,Ministry of Education; the Permanent Secretary, Ministry of Finance; theRegistrar; and the Bursar, as Secretary.

The Senate is the principal academic authority and internalgovernance body of the University. In addition to responsibilities relatedto teaching, instruction, research, and degree granting, the Senate has theresponsibility "to consider the budgets of Academic Departments,Institutes, and Faculties in respect of teaching and research forreco-mendation to the Board of Finance and the Council." The membership ofthe Senate includes the V71ce-Chancellor, who serves as Chairman, thePro-Vice-Chancellor, Dean.- of Faculties, Registrar (as Secretary),Librarian, Heads of Academic Departments, Professors of the University,five members elected at large by the full-time academic staff, thetutors of each faculty, President of the Students' Union, Directors ofInstitutes, heads of Affiliated Institutions, Dean of Student Affairs, andany member of the academic staff who is a member of the Council. TheSenate must hold at least one meeting each semester while the Chair maycall special meetings, as can the membership by written request of fifteenmembers.

Parallel to this body 1s the Board of Management, which has theresponsibility for the general administrative and technical services andestates of the University. Among its powers, the most important is -toexamine the estimates of income and expenditure required for the operationsof the University which do not fall within the competence of -'ie Senate andto make the necessar recommendations to the Board of Finance% Themembership of the Board of Management includes the Vice-Chancellor, asChairman, the Pro-Vice-Chancellor, two members of Senate, one memberappointed by the academic staff, two members appointed by the non-academicstaff, one student appointed by the Studeats' Union, the Bursar, theDirector of Works, and the Registrar as Secretary. The Board is requiredto hold at least two regular meeting each semester. -

Other bodies with important decision making and auisory powersare the Board of Development with the responsibility of advising on thegrowth and development of the University; University Tender Board, whichadvises the Vice-Chancellor on all matters concerned with the submissionand acceptance of tenders; Academic Staff Appolatments Committee, whichrecommeads to the Council the appolntment, retention, and other terms ofservice of all members of the academic staff and all administrative andother staff on academic terms and conditions of service; and Non-AcademicStaff Appointments Committee, which recommends to the Council theappointment, retention, and other terms of service of the non-academicstaff of the University. The Vice-Chancellor, or his representative,chairs each of the above bodies.

- 82 -

ANNEX 2Page 3 of 5

The Vice-Chancellor is the chief academic and administrativeofficer of the University. Since the Senate is the locus of academicauthority in the University, the Vice-Chancellor serves as itschairman. The Pro-Vice-Chancellor, who is appointed on the recommendationof the Vice-Chancellor, after consultation with the Senate, assists theVice-Chancellor with his academic duties. The Pro-Vice-Chancellor issimilar to a Provost or an Academic Vice-President in the United States.His term is two years with the eligibility of being reappointed.

Below the Vice-Chancellor's office, the University is dividedinto faculties. However, the faculties are a loose confederation ofacademic departments and are not the equivalent of "college" within atypical U.S. university. The dean of a faculty is more of a coordinatorthan an administrator and has little, if any, resource allocation powerbetween the academic departments of his faculty. His main authority andresponsibilities are in the academic areas of teaching and research,especially in course content, and in recommendations for awarding ofdegrees. The NUL currently is divided into five faculties-- Education,Humanities, Law, Science, and Social Sciences, containing twenty-oneacademic departments- as well as four institutes.

The Registrar is the chief administrative officer appointed bythe Council and responsible both to the Vice-Chancellor and to theCouncil. The Registrar represents the continuity of the institution for itis generally expected that his tenure would extend across the tenure ofseveral Vice-Chancellors. The Registrar, with the assistance of theBursar, has the ultimate responsibility for the development of the overallUniversity budget and its presentation to the Board of Finance and then tothe Council.

An important administrative unit of the University which servesas a bridge between the academic and administrative support areas is theDevelopment Planning Unit. This Unit reports to the Office of theVice-Chancellor and is presently staffed with an expatriate academicplanner, a local academic planner (counterpart), an expatriate physicalplanner, and an administrative assistant. The Unit reviews and updates theNUL Five-Year Development Plan, mesasures academic and non-academic staffwork-load, develops staff evaluation instruments, and develops proposalsfor capital projects for which donor funding will be elicited. There is alocal counterpart for the academic planner who is now in trainingoverseas. Ideally, the Development Planning Unit would be fully involvedin not only the capital development planning exercise but also provide themanagement information required for day to day decision-making. However,the Unit has developed only a rudimentary capability in this area and itsreviews and evaluation of work-load, and facilities utilization areinadequate.

The NUL Budget Development Process

In the past, the budgetary process began with the preparation bythe Bursar of budget guidelines early in the academic year in order thatcost centers could start developing their budgets for the followingfinancial year, which runs from July 1 to June 30, or three months later

- 83 -ANNEX 2Page 4 of 5

than the Government's fiscal year. However, in the past three years, withthe poor econonic conditions facing Lesotho and an uncertain level ofsupport from government, the University has not carried out a full budgetdevelopment process starting at the departmental level and working its wayto the fiual aggregation of a University budget. Rather, the Universityhas awaited final word on the size of its subvention and then has askedcost centers to develop budgets within the allocated amount. Since theNational Budget Is generally determined by April 1, the University hasthree months in which to go through the allocative budgetary process.

Regardless of whether the budget Is developed from cost centers,the same deliberative and approval process is followed. On the academicside, the process begins at the academic department where each member ofthe department has an opportunity to request budgetary support for hisparticular interest or responsibility. After the budget is agreed upon atthe departmental level, it may be passed to the Dean of the Faculty as acourtesy for him to transmit to the Senate for review and approval. Fromreview of Senate minutes during budget presentation, it appears that thereview of the departmental budgets in the Senate is taken seriously andspecific budgetary proposals are fully discussed. After the budgets arereviewed and approved by the Senate, they are aggregated and presented tothe Board of Finance of the Council.

On the non-academic side, cost center budgets are reviewed by theBoard of Management in much the same manner as the academic budgets are Inthe Senate. After review and approval, the non-academic budgets arecombined with those of the academic area and the aggregate is submitted tothe Board of Finance as the University Budget.

The Board of Finance reviews the budget which Is then presentedto the Council for final approval. Since the membership of the Board ofFinance includes the Senior Permanent Secretary, who is Chairman of theCouncil as well as the Board of Finance, the Permanent Secretary of theMinistry of Finance, and the Permanent Secretary of the Ministry ofEducation, a likely conclusion is that by this means the University budgetis receiving prior government scrutiny and, therefore, approval bygoverument before Council acts on it. In fact, it appears that these topgovernment officials do not analyze the budget in any detail in accordancewith their official duties in the civil service.

Preceding budget approval there have been negotiations with theMinistry of Finance on the level of subventions, for, as pointed out above,the national budget is completed three months earlier than the KUL budget.Thus, the ultimate size of the NUL budget is influenced by the level ofsubvention which the government is able and willing to provide. However,There is no requirement that NUL yield to the sizing of its budget from thesubvention voted in the approved estimates of the Government of Lesotho.

-84 - ANNEX 2Page 5 of 5

The NUL can take a chance of having a supplmentary subvention approvedwhen supplementary estimates are presented and approved in the NationalAssembly ldter in the financial year. Reliance on supplementary estluatesto complete the covering of a full year's expenditures has become apractice in Lesotho as well as other countries in Africa. Thus, theoriginal budget process is not a final determination of the level ofspending for a year, but is a partial step with the supplementary budgetlate in the financial year completing the process.

- 85 -ANNEX 3Page I of 3

.IOdIGkH

American Association for Higher Education, -Guide to InterinstitutionalArrangements: Voluntary and Statutory", Washington, D. C.: AmericanAssociation for Higher Education, 1974.

Brinkuan, Paul and Krakover, Jack, Comparative Data for Administrators InHigher Educatione, Boulder. Colorado: National Center for Higher EducationManagement Systes, 1983.

Burke, Dr. B. Meredith, 'The Outlook for Labor Force Growth and Employmentin Lesotho-, Maseru, UNDP, July 1981.

Courtney, D.W, 'Lesotho- Organization and Management at the NationalTeaczer Training College', Unesco, Paris, 1982.

Craven, Eugene C., New Directions for Institutional Research, AcademicProgram Evaluation. San Francisco: Jossey-Bass, 1980.

Dunworth, J. and Bottomley, A. -Potential Economies or Scale in theUniversity of Bradford-, Socio-Economic Planning Sciences, Vol. 18 (1974).

Gebre-ab Newaye, "Cost Benefit Analysis of Education in Lesotho-, Maseru,Ministry of Education, November 1983.

Government of Lesotho, Manual of Budgetary Procedures", Maseru: Ministryof Finance, 1974.

Hussain, K.M., Institutional Resource Allocation Models in HigherEducation, Paris: OECD, l976.

Institute of Development Management, "Annual Report", 1982, Gaborone:Printing and Publishing Co., 1983.

Institute of Development Management, -1984 Prospectus", Gaborone: GaboronePrinting Works, 1983.

Institute of Extra-Mural Studies, "Annual Report for the Year 1981/82-,Maseru, 1982.

Institute of Labour Studies, "Annual Progress Report, 1981/82", Maseru,1982.

Kingdom of Lesotho, 'Annual Estimates, 1982-1983, 1983-1984-, Maseru:Government Printer, 1982, 1983.

Lesotho In-Servlce Education for Teachers (LIET), "Student Handbook,1982-84-, haseru, December 1981.

- 86 - ANNEX 3Page 2 of 3

Martin, Dan M., "The Academic Consort mm: Limitations and Possibilities",Education Record, Winter 1981, pp. 36-39.

Mathur, Hari Mohan, Training of Development Administrators, Kuala Lumpur:United Nations Asia and Pacific Development Centre, 1983.

Miller, Richard I., The Assessment of College Performance, San Francisco,Jossey-Bass, 1979.

Ministry of Education, Sports and Culture, 'Education Sector Review, Costand Financing of Education in Lesotho", Maseru, May 1982 (Mimeo).

Ministry of Education, Sports and Culture, "The Education Sector Survey:Report of the Task Force", Maseru, November 1982.

National University of Lesotho, "Annual Budget, 1981-82, 1982-83, 1983-84",Roma: NUL, 1981, 1982, 1983.

National University of Lesotho, "Calendar, 1983-84", Roma: NUL, 1983.

National University of Lesotho, 'Vice-Chancellor's Report to the Council,1982-1983" Roma: NUL, 1983.

National University of Lesotho, 'Second Five-Year Development PLan", Roma:NUL, 1981.

NUL, *Staff Housing Scheme Project", Rome, May 1983 (mimeo).

NUL, *The Financial Position of the University", S83/18, Appendix D, March1983, (mimeo).

Patterson, Franklin, Colleges in Consort, San Francisco, Jossey-Bass, 1974.

Patterson, Lewis D., and al., Costing Collegiate Cooperation, A Report onthe Costs and Benefits of Inter±nstitutional Programs with Consortium CaseStudies and Guidelines, University of Alabama: Council forInterinstitutional Leadership, 1979.

Pierson, Harry H., ed., University Cooperation and Asian Development. SanFrancisco: The Asia Foundation, 1967.

Pratt, Simon, "The Cost Effectiveness of Teacher Education", Unesco, Paris,1979.

Psacharopouilos, George, "Higher Education in Developing Countries: ACost-Benefit Analysis", World Bank Staff Working Paper No. 440, Washington:IBRD, November 1980.

Russell, D., 'An In-Depth Look at the Successes, Weaknesses, Challenges,and Potential for Assistance to National Development of a Large Non-FormalEducation Institution in Africa", n.d., n.p.

-87- ANNEX 3Page 3 of 3

Stauffer, Thomas M., Competition and Cooperation in American HigherEducation. Washington, D.C.: American Council on Education, 1981.

United Nations Development Programme, -Report of the Evaluation Mission onthe University of Botswana, Lesotho and Swaziland'. New York: UNDP, 1975(Caeo).

USAID, "Project Evtluation Summary, the Institute of Extra-Mural Studies,National University of Lesotho Project-, F. Method, Zak A. Mats'2la, J.Hoxeng, Maseru, November 1983.

Van der K"a, B.F.(Unesco), "Vocational Training, Technician Training, andTechnical Education in Secondary Schools in Lesotho", MDE, Maseru, March1982.

Woodhall. Maureen, Student Loans as a Means of Financing Higher Education,Lessons from International Experience", Wash:tngton, D.C.: World Bank, 1983.

World Bank, "Financing and Efficiency of Education in Malawi%. Washington,D.C. April 1984.

World Bank, "Financing of Education in Eastern Africa; Controlling theCosts of Primary and Secondary Education", Washington, D.C., January 1984.